chapter 13. natmap 2050 implementation methodology
TRANSCRIPT
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-1
CHAPTER 13. NATMAP 2050 IMPLEMENTATION METHODOLOGY
PAGE 13-2 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
13.1 Introduction
The delivery of the NATMAP 2050 is very important. The
NATMAP 2050 is a master plan that defines the course of
action for transport in South Africa along with the
interventions that have to be implemented to realise its bold
vision and objectives. The DoT is committed to supporting
the prioritised implementation of the interventions and
actions defined in this important plan. The plan will require
additional technical support from existing provincial and
municipal transport plans as well as stakeholder cooperation
for it to be fully implemented. Implementing the plan will
require the ownership of relevant interventions by the
agencies, provinces and local government.
Chapters 10 and 12 set out the statutory transport
responsibilities and obligations of the various bodies
engaged in the provision of the transport system. This
chapter expands upon the previous chapters by defining
how the DoT and its partners will enable the delivery of the
interventions and strategies defined by the NATMAP 2050 to
bring about the plan’s vision.
To this end, this chapter outlines four implementation
fundamentals:
The main implementation priorities emanating from the
NATMAP 2050
A prioritisation methodology aimed at guiding planners in
implementing transport or spatial planning and applying
the NATMAP 2050
Draft guidelines on the approach to be followed to prove
the business case for prioritised intervention
A framework that measures progress towards achieving
the objectives of the NATMAP 2050.
13.2 Key Implementation Priorities
Emanating from the NATMAP 2050
Chapter 1 defined the national strategic priorities for
transport in South Africa in response to the issues and
challenges identified and strategic direction defined by
current and emerging planning policy, including the NDP
2030 and the SIPs.
The mechanism to deliver the NATMAP 2050 and its vision
for transport are the interventions developed to deliver the
desired outputs. All interventions defined by the NATMAP
2050 have been prioritised using the goal achievement
matrix (GAM) (see Annexure A), which included a broad-
based consultative process among many stakeholders. The
GAM includes multicriteria analysis and evaluation
techniques typically used by the World Bank and the
European Investment Bank for the evaluation of strategic
investment projects.
The priorities were categorised as short-term (for immediate
action) and medium- to long-term priorities (up to 2050).
Medium- to long-term priorities are not immediate critical
priorities but are necessary to provide direction and meaning
to transport in South Africa over the next few decades. The
priorities are identified in the following sub-sections:
13.2.1 Short-term priorities (5 years – 2015–
2020)
Funding policies, strategies and reallocation
Transport/road safety
Urban transport and land use and transport integration
Eradicating inefficient planning to enable better decision-
making and positive outcomes
Institutional reform to enhance intergovernmental
relations and coordination and to strengthen institutional
and organisational planning structures and processes
Refocusing public transport (including scholar transport)
initiatives to be demand- and developmentally
responsive, customer-focused and commercially driven
within the context of integrated land use and transport
Providing opportunities for empowerment in public
transport provision
Country-wide land transport infrastructure improvements
(road and rail)
Rural transport – improving rural mobility and accessibility
to economic opportunities
Examining the operational hours of heavy goods vehicles
on public roads in support of road safety objectives. The
action should include a full regulatory impact assessment,
which includes the impact on labour, pricing and
manufacturing competitiveness.
Tourism and transport integration.
Science, technology and innovation in transport.
Supporting the green economy strategy.
Economy
13.2.2 Medium- (2020–2030) to long-term
(2030–2050) priorities
Urban densification
Preparing regulations on universally accessible transport
National TDM strategy and a traffic congestion
management plan
National freight transport operations across all modes
must work together to supply services to meet pit-to-port
demands
Supporting the green economy strategy
Developing a national TOD strategy and guidelines for
cities
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-3
Investing in a mobility strategy and its implementation in
rural areas, providing access to transport opportunities.
The delivery of these priorities can only occur by linking
them to action. By linking the priorities to the interventions,
projects and recommendations defined in the preceding
chapters; implementation and action are established. Many
of the interventions and projects were not costed and
business cases have not been developed for each of them.
To achieve action, many of the interventions and projects
need further investigation and scrutiny based upon more
detailed analyses, feasibility studies, costing exercises and
business case development.
The preceding chapters highlighted the priority interventions
recommended for implementation. Summarised below are
the short-term interventions.
13.2.3 Proposed short-term interventions in
support of the current MTSF
It is imperative that the recommended interventions, which
will have a significant impact on transport in the short term,
be implemented and that appropriate market signals be sent
to strengthen transport’s role in supporting the economy.
The list below represents the key short-term interventions
proposed for implementation (subject to individual business
case development and conversion into projects):
FINANCING, FUNDING & CHARGING
Investigate and develop a policy position on clarifying the
government’s commitments to subsidising transport
infrastructure and services, including those provided by
state agencies and companies.
Develop a policy position and methodology for cost
determination and marginal allocation by publicly owned
transport agencies and companies.
Develop guidelines on congestion charging and its
application in the wider context of a national
transportation demand management strategy.
Establish and implement the single-transport economic
regulator (STER), which will ensure that the previous two
recommendations are applied in a consistent manner
across modes. In the meantime, the interim rail economic
regulator will concentrate on non-tariff aspects of rail
economic regulation (regulating third-party market
access, monitoring service levels, ensuring sufficient
capacity, setting and assessing standards, dealing with
customer grievances, etc.).
Develop a policy position on what constitutes commercial
and social infrastructure and an approach to how social
infrastructure can be financed and funded.
Examine the merits of mass-distance charging and cross-
border charging to commercial road haulage and define a
road map for implementation.
ROAD SAFETY
Implement the interventions associates with the 5 core
pillars of road safety as described in the emerging
National Road Safety Strategy 2016-2030, in relation to:
Road safety management
Safer roads and mobility
Safer vehicles
Safer road users
Post-crash response
Prioritise the development of safer road infrastructure
for all users particularly where infrastructure is known to
contribute to accidents / incidents.
Compulsory road safety audits should be undertaken, in
collaboration with the Road Transport Management
Corporation (RTMC) and reviewed every 5 years in
accordance with the policy intent of the Draft NMT Policy.
Department of Transport, via the RTMC, to educate
appropriate personnel in undertaking road safety audits.
Development of a National Traffic Accident Databank.
DoT to create a road safety forum to facilitate an
integrated approach to road safety management and
traffic data collection, monitoring and reporting on road
crashes via the RTMC – data to feed into National Traffic
Accident Databank.
The Departments of Education, Health and Justice
should become involved in road safety management, as
road safety is a co-responsibility and multi-disciplinary,
multi-dimensional challenge.
Upskill and train personnel at Provinces, Metros and
other local authorities involved in road safety
management to maintain a minimum level of skilled
personnel.
Completion of the roll out of the driver de-merit system
by the RTMC.
Develop and implement Workplace Road Safety
Management Systems – employers will be required to
develop such systems as parts of their Health and Safety
and quality management systems. A suitable legal
mechanism and lead agency (e.g. RTMC) is to be
identified to ensure compliance of the intervention. The
system should include the following elements:
Driver training to ensure competence
In vehicle monitoring systems
Mobile phone engagement
Journey management
Driver fitness and alertness
Vehicle specification (fit for purpose)
Implement an average (variable) speed limit strategy in
metropolitan areas and at known accident locations and
or seasonal implementation. The intervention aims to
balance the needs of traffic flow with the safety of all road
users by applying consistent and coherent speed
management.
Implementation of vehicle speed activated signs.
PAGE 13-4 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
Enhancing road safety measures (e.g. traffic calming,
education, infrastructure design engineering to reduce
vehicle speeds etc) in areas of previously disadvantage –
there is a strong correlation between accidents in such
areas involving the vulnerable, pedestrians and children.
Strengthen capacity and enhance funding in support of
Community Road Safety Forums.
Implement rider improvement programme – aimed at
offenders to improve awareness of positive driving
behaviour and a positive responsible approach to prevent
unnecessary deaths and injuries to fellow road users.
Investigate implementation via the provisions of AARTO.
Encourage the use of rail transport through local level
IRPTN’s, ITP and LITP’s in geographical areas where
PRASA operates passenger rail services.
PASSENGER TRANSPORT
Demand- and developmentally driven public transport
systems planning – Whilst it is financially unsustainable to
provide full demand-responsive public transport as a
social service (heavily subsidised) up to 2050, due
consideration must be given to a package of measures
that will lift many South Africans out of poverty to enable
the provision and affordability of world-class public
transport – so that public transport will be seen not as a
mode that caters for the poor, as it has been, but as a
system that caters for all as a mode of choice.
In dealing with the issue of the role of the different
spheres of government in passenger transport, resulting
in the fragmented and uncoordinated delivery of
passenger transport, it is proposed that devolution
responsibilities be assigned to authorities as foreseen in
the Constitution and prescribed by the NLTA.
It is recommended that the DoT and the Department of
Basic Education develop a collaborative and integrated
task team geared to investigate the scholar transport
issue and decide on the most appropriate socio-economic
solution.
Development of a modal technology choice framework to
ensure that the appropriate modes of passenger transport
or other forms of transport are provided in relation to
identified passenger demand.
Implementation of densification plans in brownfield
developments must be encouraged, protecting greenbelt
areas to prevent further urban sprawl.
Development of an overarching public transport subsidy
policy that incorporates all modes of public transport to
subsidise users and not the operators.
An in-depth investigation (review, evaluation and
economic feasibility study) of the existing BRT delivery
model is required to either improve the sustainability of
its delivery or to intervene in the future role of BRT
systems in South Africa. The investigation should be led
by the DoT.
Public transport planning guidelines must be developed
to allow for the alignment of spatial and geographical
development, population densities and land use patterns
with appropriate modal and infrastructure responses
based on technology choice analysis. Apply
developmental approaches, particularly in rural areas,
where sufficient passenger numbers do not exist to satisfy
the classic demand drive model of predict and provide.
Long-term financial viability and funding mechanisms for
the ongoing and ever-increasing operational costs of
services must be established.
The provision of NMT is underlined by its associated
policy, addressed by the national rural strategy as well as
the IRPTN requirements for NMT facilities around BRT
facilities. However, a comprehensive NMT strategy and
guideline document is required for the overall urban and
rural transport system.
The development of universal access guidelines based on
international best practice to implement universal access
in terms of all classes of passengers, people with
disabilities, the elderly, young children, language with the
roll-out of future passenger transport and the retro-fitting
of current vehicles and facilities. The guidelines need to
define a suitable roll-out period with regard to funding
implication and costs to the industry.
Implement Moloto corridor passenger transport services.
LAND USE
Informal economic activity survey: The analysis of
economic activities and population needs in the informal
sector of the economy and commercial and subsistence
agricultural activities requires research and detailed data
collection. The purpose of collecting the data is to
determine the needs of the population members who
earn their income in these segments to enable spatial,
infrastructure and transport planners to provide context-
sensitive solutions and to enhance and build on the
existing economic activities. Furthermore, changes
required in policy and legislation can be informed through
this data.
Land policies: Given the continued influx of the
population to more economically developed metropolitan
and other urban areas, an integrated approach between
land use planning, housing provision, municipal services,
social amenities and public transport provision should be
implemented by all spheres of government. Detailed
policies relating to land use and transport planning are
provided in chapter 5 of this report.
Densification and corridor infill development: The use
of vacant land and property within built-up areas should
take place along public transport corridors to improve
public transport ridership. The provision of community
facilities should become a priority in nodes supported by
transport corridors.
Development of rural areas: to provide infrastructure
that promotes sustainable economic activity to minimise
the emigration of people from rural areas and to maintain
rural transport infrastructure. Beneficiation
(industrialisation) around the primary sector needs to be
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-5
strengthened to support and enhance economic growth
and job creation in rural areas.
Demand-driven, developmental and responsive public
transport systems planning: A large proportion of South
Africans are categorised in the low-income bracket and
are dependent on public transport to access
opportunities. This statistic is projected to reduce over
time, given the implementation of sufficient supporting
economic job-creating measures.
Investment in infrastructure: promotes continued
investment in infrastructure in urban and rural areas.
Guidelines: Establish guidelines about the socio-
economic role and financial implications of transport
in South Africa.
Development of special economic zones (SEZs): SEZs
are critical to the government's objectives to advance
industrialisation, rural development, job creation as well
as attract foreign direct investment (FDI). Special
arrangements must be made for supporting infrastructure
to support these developments. Transport network
planning and transport services implementation should be
aligned with and support SEZs.
Support SPLUMA and the implementation of the IUDF
(Draft.
Implementation of the urban network strategy and 18
identified urban nodes, focusing on infrastructure
spending, public transport system development, housing
and urban management.
RURAL TRANSPORT
Establish a national strategic rural transport network plan
(connecting major nodes e.g. 18 cities) that focuses
investment and unlocks economies of scale.
Support beneficiation (industrialisation) around the
primary sector in rural areas to support and build
population numbers – this will strengthen the affordability
of rural transport provision.
Introduce a comprehensive non-motorised transport and
intermediate means of transport programme in rural areas
supported by the development of a strategic off-road
infrastructure network implementation plan. The plan will
promote initiatives, including paths and tracks for non-
motorised transport modes, to provide better access to
mainstream infrastructure, incorporate cycling, animal
drawn carts, etc.
INSTITUTIONAL
The legislative establishment of the NTF and the
strengthening of its role to consolidate stakeholder and
institutional alignment.
The development of multimodal legislation to guide and
direct multimodal coordination and planning and the
establishment of appropriate approved entities.
Provision for giving effect to the establishment of
provincial transport investment funds.
An examination of whether the multiple government
portfolio model adversely affects strategic coherence and
decision-making ability (with reference to the example
highlighted in Section 10.2).
The supporting of processes embarked on to develop
legislation that seeks to respond to the need for the
establishment of the STER.
The creation of the proposed consolidated transport
databank to serve as a technological data and information
solution.
An enhancement of regional harmonisation and
integration by way of the review and liberalisation of the
regulatory framework of South Africa in support of the
development of integrated regional corridors as discussed
in Chapter 7.
TRANSPORT DEMAND MANAGEMENT
Develop national road transport demand management
guidelines and individual traffic congestion management
plans for all metros.
URBAN TRANSPORT AND SMART CITIES
Develop national TOD guidelines appropriate to urban
and rural environments with respect to “how to plan”,
“where to plan” and “how to implement”.
TOURISM AND TRANSPORT
Ensure that the tourism sector plays a critical role in
tourism planning.
Enhance tourism through explicit consideration in IDP’s
and IRPTN’s.
Ensure that tourism coordination be included in all
relevant government departments associated with
planning, project development, traffic engineering,
construction, maintenance and public relations.
Ensure proactive involvement of tourism groups in the
transportation planning process.
Utilize tourist-related travel data in transportation
planning, possibly including joint funding of data
collection efforts.
Recognize institutionally that traveller information services
are an integral element in all transportation projects
designed to enhance tourism, including providing up-to-
date and relevant travel information to specific markets.
Department of Transport encourages cooperation with
the Department of Tourism.
In further developing the land transportation service in
South Africa, the following guidelines should apply:
Consider training taxis and other disadvantaged
transport operators in order to enhance their services
PAGE 13-6 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
and allow them to play an important role in the
tourism industry.
Encourage entrepreneurship in the provision of
transportation services.
Improve the linkages and coordination among different
forms of transportation.
Encourage more open competition.
Encourage strategic alliances with other stakeholders in
the industry.
Expand the range and accessibility of different
transportation options to visitors.
Consider the safety and standards of land
transportation services to satisfy the needs of tourists
(domestic and international).
Department of Tourism to work closely with the
Department of Transport to improve land
transportation services for both the domestic and
international tourism industry and eliminate
bottlenecks that may arise.
Consider the formation of a Tourism Transportation
working group to address and coordinate all issues of
mutual interest (applicable both to air and land
transportation).
SCIENCE, TECHNOLOGY AND INNOVATION IN
TRANSPORT
The Department of Science and Technology will work
more closely with the Department of Transport to
investigate how to respond to impending disruptive
technologies in the transport industry.
The following emerging technologies will be investigated
with a view to support transformation of the transport
sector:
Autonomous Vehicles
Connected Vehicles
Collaborative Consumption
Electric Drivetrain
Efficient Multimodal Network
New Materials (including 3d printing)
ENVIRONMENT AND ENERGY
Invest in the research and development of alternative
green vehicle technology, e.g. light rail transit (LRT) as well
as fuel efficiency.
Develop incentives to encourage modal shifts from less
energy efficient modes of transport (e.g. road and short-
haul air) to more energy efficient modes of transport (e.g.
rail).
Reinvigorate environmental due diligence in transport
infrastructure development.
Create and implement a sustained energy awareness
programme to raise public awareness of the true financial
and environmental costs of transport modes with high
carbon and energy intensities.
Plan for new long-distance transportation infrastructure
(e.g. long-distance trains) with lower energy intensity than
road transport, provided that the proposed interventions
meet the minimum distance threshold for the proposed
transport infrastructure to be cost-effective and to
compete with other forms of transport.
Quantify energy consumption by rail and road transport
for identified key transport corridors and formulate a
transportation energy reduction strategy.
Actively implement:
the DoT transport energy consumption reduction
strategy
the Nationally Appropriate Mitigation Actions (NAMAs)
identified in the DoT Greenhouse Gas Emission
Reduction Strategy for the Transport Sector (GHGERS).
Develop and implement transport-sector specific
programmes and projects that support (where
appropriate) and align with South Africa’s Nationally
Determined Contributions (NDCs) as agreed at COP 21.
Relevant DoT stakeholders to define actions for the
transport sector to support the Agri Park concept in terms
of:
accommodating the Agri Park concept into the freight
logistics value chain
Linking Agri Parks to the urban environment in terms
of appropriate road, rail and air infrastructure
Linking Agri Parks to the urban environment in terms
of public transport infrastructure and services
Linking Agri Parks to the urban environment in terms
of non-motorised transport
ECONOMY
Consider modifying the infrastructure grant system to
involve all sectors in creating joined up programmes.
Refocus the neighbourhood development partnership
programme to support the development of economic
hubs in large urban townships.
Reform the system of development charges to improve
fairness and transparency and reduce delays in
infrastructure provision for private land developments.
Expand opportunities for private investment in municipal
infrastructure.
Review the sustainability of existing own-revenue sources
for metropolitan municipalities, particularly in light of
their expanding responsibilities in public transport and
human settlements.
Continue integrated land use and transport planning, as
spatial development and planning are important
considerations to any integrated forward planning
activities that have an economic impact.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-7
INFRASTRUCTURE
ROADS
Preventative road maintenance:
Improve the maintenance of the life cycle of roads at
optimum levels, which will minimise costs.
Moloto Road:
Upgrade the Moloto Road to improve safety and
mobility.
N3 Durban–Pietermaritzburg capacity improvements:
The upgrade will include a proposed Pietermaritzburg
ring road and rerouting of the N3 near Hammarsdale.
Capacity improvements on the N3 aim to enhance the
network’s functionality and safety by providing an
alternative route and splitting light and heavy traffic to
ensure that both routes operate at optimal levels
without bypassing opportunities (e.g. Harrismith).
A complementary solution is being developed in
support of the Harrismith freight logistics hub, the
Tsiame gateway and the N3 De Beer’s Pass.
Pongola and eDumbe Road upgrade:
The project will entail the upgrading of the D-1867
road off the N2 between Pongola and Piet Retief from
gravel to tar.
N3TC:
Entails the rehabilitation of specific sections, including
sections between Harrismith and Warden and sections
between Cedara and Tweedie near Howick.
N2 Wild Coast Highway – construction and upgrading:
Entail the construction of new highway sections (17-km
section between Ndwalane and the Ntafufu River and a
section between Lusikisiki and the Mtamvuna River,
including 6 large bridges across the following rivers:
Msikaba, Mtentu Mnyameni, Kulumbe, Mpahlane and
Mzamba.
Involve the upgrading of the existing R61 between the
Ntafufu River and Lusikisiki, a distance of about 17km,
including a new interchange at Lusikisiki.
Gauteng:
Construction of PWV9.
Construction and implementation of Class 2 routes in
all municipalities.
Various road upgradings (K29–Malibongwe Road/
Johannesburg–Brits interprovincial road, roads
providing connectivity to the OR Tambo International
Airport – PWV15, K86 link, K88 link).
KwaZulu-Natal:
Provision of a new heavy-haul route from the N2 to
Cato Ridge (SIP 2).
Provision of heavy-haul route between Richards Bay
and Melmoth (SIP 2).
Western Cape:
New weighbridges.
Capacity improvements on various roads (M7, R302,
R310, R300).
Doubling of the Huguenot Tunnel.
Bypass around Knysna.
Free State:
Strategic gravel road upgrades in all district
municipalities.
Mpumalanga:
Upgrading of the coal haulage roads in the province
(SIP 1).
Limpopo:
Upgrading of coal haulage roads in the province (SIP
1).
Northern Cape:
Road upgrades and capacity improvement (N12
between Warrenton and Klerksdorp).
North West:
Road upgrades and capacity improvement (N18
between Setlagole and Vryburg).
All provinces:
Elimination of backlog in maintenance of road network
of national importance.
Periodic and routine maintenance to road network of
national importance.
RAIL
Freight transport interventions
The NATMAP 2050 package strategy envisaged for
freight rail includes an optimised road–rail modal split
strategy and identifies rail infrastructure development
interventions.
Alternatives to optimise road/rail infrastructure assets
to provide greater efficiency at lower cost will be
executed through the development of this detailed
strategy and the specification of regulatory measures
and a time programme. This will include the following
alternatives:
A monitoring programme
An information database as part of the DoT central
database system, supplemented by a legalising
process to enforce the strategy to obtain an
acceptable balance between road and rail freight.
Proposed passenger rail interventions
Categories need to be introduced for passenger rail,
ranging from metropolitan, suburban low-speed
commuter and intercity low- and medium-speed
systems, to intercity high-speed systems. These
passenger rail categories are classified in terms of
service distance, speed, station spacing, and target
markets.
It is envisaged that, by 2050, all metropolitan areas,
and high-density and -income district centres will have
a rail commuter system. Based on modal threshold
specifications, residential areas will connect with central
business districts (CBDs). Similarly, linkages and the
integration of various passenger transport systems and
modes will be implemented by means of transfer
facilities and ticketing systems.
Profiles will be specified for rail systems in
metropolitan/urban areas for intercity medium-speed
and -distance corridors, and for high-speed systems
along all national corridors. All international airports
PAGE 13-8 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
will be linked to city centres and other rail commuter
systems.
Rail priorities and programmes for various
long/medium-distance high/medium-speed corridors
are:
Durban–Free State–Gauteng (N3) corridor,
(Gauteng–KwaZulu-Natal).
Moloto corridor to Mpumalanga.
N1 (Gauteng–Limpopo–Free State–Western Cape).
Moloto corridor (second phase into Limpopo).
North West corridors to Gauteng.
Cape Peninsula – northern districts.
N4 corridor from Tshwane to Mbombela (2020–
2030), N2 tourism corridor (Cape Town–George–
Nelson Mandela Bay–eThekwini), ThabaNchu–
Bloemfontein, and other similar medium-distance
commuter corridors that are still to be subjected to
feasibility studies.
Interregional connections with Zimbabwe extension
of N1 rail corridor (via Beit Bridge to Harare),
Namibia extension of N1 corridor (via Bloemfontein,
Kimberley, Upington, Windhoek), Mozambique
extension of N4 corridor (via Mbombela to Maputo),
Botswana extension of Platinum corridor (via
Rustenburg, Zeerust, Gaborone).
Waterberg–Mpumalanga–KwaZulu-Natal rail link (part
of SIP1)
Unlocking the northern mineral belt with Waterberg as
catalyst. In July 2014, Transnet issued tenders to allow
for formal investigations into the rail requirements of
the Waterberg region. Transnet wants a prefeasibility
study on the Waterberg infrastructure and feasibility
studies on the rail infrastructure linking the coal-mining
town of Lephalale in Limpopo with Ermelo in
Mpumalanga, which is a key coal-logistics junction. The
studies are expected to be finalised by August 2015
and will form part of a plan to connect the coalfields in
Waterberg, as well as those in Botswana, with export
terminals in KwaZulu-Natal, as well as with Eskom’s
power stations.
SIP2: Durban–Free State–Gauteng logistics corridor
According to freight forecasts, it is expected that, in the
next 25 to 30 years, containers moving from the Port of
Durban to Gauteng will grow almost eightfold, from
about 1.75 million a year today to 13 million a year.
Without a new rail line, these expected increases in
freight will see a disastrous mushrooming in the
number of freight trucks travelling between the port
and South Africa’s economic hub. The existing rail line
is in a poor condition and has speed limits in some
places of as low as 50km/h. The new rail line will be
built to have a maximum speed of 120km/h and will
largely be dedicated to carrying freight.
SIP3: South-eastern node and corridor development
Upgrading of port and rail capacity, construction of a
new dam in Umzimvubu in the Eastern Cape,
construction of rail infrastructure to transport
manganese from the Northern Cape to Port Elizabeth,
construction of a manganese sinter facility in the
Northern Cape and a smelter in the Eastern Cape.
SIP5: Saldanha–Northern Cape development corridor
Expansion of rail and port infrastructure in the
Saldanha area, construction of industrial capacity at the
back of these ports (including a possible industrial
development zone), strengthening maritime support
for the gas and oil activities along the western coast,
expansion of iron ore mining production.
SIP10: Electricity transmission and distribution
Alignment of freight rail line development with the 10-
year energy transmission plan.
SIP11: Agri-logistics and rural infrastructure
Investment in infrastructure such as storage facilities,
transport links to main networks, the fencing of farms,
irrigation schemes to poor areas, agricultural colleges,
processing facilities (including abattoirs) and rural
tourism. Expansion of transport links to main networks
(rural roads, branch-line, ports).
SIP17: Regional integration for African cooperation
and development
Investment in mutually beneficial projects in the free
trade area, encompassing East, Central and Southern
Africa. Projects involve transport, water and energy.
PRASA rolling stock renewal programme
PRASA is undertaking a R123 billion investment over a
20-year period to renew its rolling stock fleet. This
programme will entail the introduction of more than
7 000 new rail vehicles for passenger transport
purposes. The entire PRASA fleet is expected to be fully
replaced by 2034.
A R51 billion contract for the first phase of the
programme was signed in October 2013 with Gibela
Rail Transportation, with commercial close on the
contract achieved in April 2014.
The contract is for the supply of 600 passenger trains,
comprising 3 600 coaches, for delivery between 2015
and 2025.
PRASA passenger rail infrastructure improvements
An estimated R15.2 billion has been set aside for
PRASA to expand and develop its network.
About R12 billion has been set aside by PRASA to
upgrade and improve its stations across South Africa.
An estimated 23 stations were set to undergo
modernisation in 2013, and 64 in 2014. A third phase
will involve the modernisation of 50 intermediate, small
and halt stations.
A further R7 billion has been set aside for the
improvement of bridges and platforms.
PRASA signalling system (Gauteng/KwaZulu-Natal)
The project is valued at an estimated R17 billion to
implement a new, technologically advanced signalling
system by 2018. The project will include the
modernisation of the rail signalling, communications
and train management systems in high-volume
corridors such as Naledi in Soweto, Pretoria to
Johannesburg, Mabopane to Pretoria, Mamelodi to
Pretoria, KwaMashu–Durban–Umlazi, Khayelitsha,
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-9
Mitchells Plain and Philippi to Cape Town,
Kraaifontein–Belville–Cape Town, and Simon’s Town to
Cape Town.
Transnet rolling stock renewal programme
Transnet is undertaking massive infrastructure and
rolling stock investments at TFR as part of its market
demand strategy to facilitate the ambition of
increasing the volume of freight transported on rail.
These investments include expenditure on TFR’s coal,
iron ore and manganese export capabilities, as well as
on its general freight business. As part of this
expenditure, in early 2014, Transnet awarded
locomotive supply contracts valued at R50 billion.
Contracts for the supply of 599 electric locomotives
and 465 diesel locomotives for GFB, which form the so-
called 10-64 programme, have been awarded to
consortiums led by four global manufacturers – GE,
China North Rail (CNR), CSR and Bombardier
Transportation. The first locomotives that form part of
the 10-64 programme will be delivered in September
2015 and the final batch in February 2018.
In addition to its locomotive-related investments, TFR is
undertaking a wagons fleet programme. In the year
that ended March 2014, 3 281 wagons were built at
Transnet facilities across the country.
Gautrain system enhancements
In 2014, a prefeasibility was commissioned and
successfully carried out for the following extensions
under the Gautrain Phase 2 development:
Extension 1: New line from Mamelodi in Tshwane to
Naledi in the south of Johannesburg.
Extension 2: Extensions from the OR Tambo
International Airport to Boksburg.
Extension 3: New connection between Randburg
and Sandton.
Other system enhancements in the pipeline include the
provision of additional parking at certain stations and
the lengthening of the OR Tambo International Airport
station to allow for four-and-a-half carriages to open
on the platform, up from two-and-a-half carriages.
Gautrain rolling stock
A business case is to be developed for the buying of
new rolling stock to further increase capacity. The
current Gautrain fleet consists of 96 rail cars and
reconfigured seating is being considered for the
Pretoria–Johannesburg line. Also under consideration is
a special, quick-turnaround service on the system’s
busiest route, between the Sandton and Centurion
stations.
Gautrain expansion routes
Four possible expansion routes are being considered:
Link from Park station, underneath the city, to
Westgate.
Link from Rhodesfield station to Boksburg.
Link from Sandton station in Randburg and
Honeydew.
Link from Naledi, Soweto, to Mamelodi, through
either the proposed Samrand station or the existing
Midrand station.
Moloto Road integrated rapid rail solution
An integrated rapid rail solution is to be implemented
on the Moloto corridor, which carries more than 35 000
commuters daily to Gauteng.
Tambo Springs inland port and logistics gateway
super terminal
Tambo Springs is planned to accommodate a new
state-of-the-art rail terminal facility as well as an
intermodal rail yard capable of handling point-to-point
movement of freight using block trains up to 2km in
length. This is possible because the Tambo Springs
property has an existing dual-directional freight rail line
that runs along the north western boundary for
approximately 3.5 km.
Manganese export line
TFR is developing the rail network between the
manganese-rich Northern Cape and the Port of Ngqura
in the Eastern Cape to become the utility’s third heavy-
haul export channel. The development aims to increase
South Africa’ annual manganese export capacity to
16 million tonnes. The business case for this expansion
was completed in November 2013. Earlier in 2013,
Transnet indicated that TFR would invest R10.8 billion
between 2012/13 and 2018/19 in rolling stock and
infrastructure to support the manganese corridor
project. The manganese export line development also
involves port-related expenditure, including at the
Ngqura manganese terminal.
Cross-border rail corridors
There is a strong link between rail and the extractive
commodity sectors that are considered key drivers of
economic growth in Africa. A regionally linked rail
network will enable the more efficient transport of
these commodities to the export centres, improving
the region’s supply chain capability and enhancing its
level of international competitiveness. The long-
planned South Africa–Swaziland rail link is an example
of intraregional cooperation focused on the
development of symbiotic rail corridors.
South Africa–Swaziland rail link
A prefeasibility study was completed in March 2013
and feasibility studies for South Africa and Swaziland’s
R17 billion rail link was completed towards the end of
2014. Construction is estimated to commence in 2017.
The railway line is set to increase general freight and
coal export capacity. It will link Lothair in Mpumalanga
with Sidvokodvu in Swaziland and free up capacity on
Transnet’s network, allowing it to move additional coal
to the Richards Bay coal terminal. Its construction
includes a new single Cape gauge line covering 146km
to be built by Transnet. It will have an initial capacity of
15 million tonnes a year. The rail link was critical for the
flow of goods in the region. The Swaziland connection
will enable TFR not only to remove the 12 general
freight trains operating daily on the corridor but also to
PAGE 13-10 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
operate the coal line exclusively on heavy-haul
principles. The link will divert general freight currently
being moved on the Ermelo–Richards Bay line through
Swaziland and, together with the introduction of new
operating solutions, can potentially raise the coal
export corridor’s capacity to 120 million tonnes. The
completion of the first tranche of 16 million tonnes a
year of additional capacity is expected in 2017/18. A
further two tranches will increase the capacity of the
link up to 31 million tonnes a year and, finally, to
42 million tonnes a year.
The following proposed interventions are province-specific:
Gauteng
Johannesburg–Durban high-speed line (SIP 2)
Develop a regional passenger rail system: N4 corridor
(Pretoria–eMalahleni–Middelburg–Mbombela–
Kaapmuiden)
Develop a regional passenger rail system: N12 corridor
(Johannesburg–Delmas–Ogies–eMalahleni)
Western Cape
Improve ore line capacity (SIP 5)
KwaZulu-Natal
Richards Bay–Piet Retief: Improve capacity of the coal
line (SIP 1)
Johannesburg–Durban high-speed line (SIP 2)
Limpopo
Moloto Jane Furse: Extend new Moloto rail corridor
Pretoria–Polokwane high-speed rail
Mpumalanga
Regional rail passenger system: R40/R538
Develop regional rail passenger system along the N4
corridor (Pretoria–Lowveld)
Pretoria–Moloto new medium-speed rail line and
passenger service
Northern Cape
Hotazel–Kamfersdam (Kimberley) line upgrade (SIP 3)
North West
Develop a regional passenger rail system on the N4
corridor
Develop a regional passenger rail system on the N12
corridor
Eastern Cape
Cookhouse–Addo line upgrade
Noupoort–Cookhouse line upgrade
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-11
13.3 Implemented within the Maritime
Sector by developing an
overarching, integrated ocean A
Prioritisation Methodology to
Guide Future Planning (Option
Selection Process)
The NATMAP 2050 will guide the development of the future
South African transport sector up to 2050. It is, therefore,
important that the NATMAP 2050 contain guidance on how
transport intervention prioritisation should be undertaken in
identifying the investment priorities going forward.
In supporting project prioritisation at the provincial and local
levels of government, a simple prioritisation methodology
has been summarised below. The purpose of the
prioritisation methodology is to provide additional, easy-to-
understand planning support to planners executing transport
or spatial planning and applying the NATMAP 2050. It can
also be applied, in particular, to projects in need of review of
prioritisation that is not reflected in the NATMAP 2050. The
prioritisation methodology is indicative and needs further
work in supporting local context and buy-in.
The process of prioritisation is referred to as the option
selection process, defined as the process by means of which
alternative interventions or options are prioritised or ranked
in terms of meeting overarching transport objectives and/or
priorities. The option selection process is objectives-led to
ensure that option or project evaluation and prioritisation
are not predisposed towards projects that might not be
optimal or appropriate. The benefits of an objectives-led
approach are that it:
Recognises the importance of transport in supporting
wider policy objectives
Recognises the DoT’s organisational objectives and uses
these to prioritise and package emerging options
Provides a clear and robust framework for considering the
merits of different outcomes and interventions.
The option selection process is shown in Figure 13-1 and
details three basic parts:
i) Definition of the needs/objectives
ii) Identification of the preferred intervention
iii) Application of the common basis assessment framework
to prioritise interventions/options in meeting transport
objectives.
The sub-sections below explain each part of the process in
turn.
FIGURE 13-1: OPTION SELECTION PROCESS FLOW
PAGE 13-12 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
13.3.2 Defining the needs and objectives
The first stage in the option selection process includes three
steps:
1) Understand the existing local context in terms of
supporting planning and transport policy, implying a
review and understanding of:
The problem we want to address within national,
provincial and local planning policy contexts
The main issues and challenges that need to be
addressed
Stakeholder engagement, if necessary.
2) Define the objective that needs to be addressed or
achieved. This is important to ensure that an option/
intervention is not predisposed towards projects that
might not be optimal or appropriate. This is influenced
by asking the question: “what am I trying achieve?”
Typical objectives could include:
An improved sustainable public transport system with
better and safer access, more frequent and better
quality services and facilities to an agreed standard
Greater mobility options, particularly for those who do
not have cars
The development of a non-motorised transport
network
Better infrastructure, a better maintained road network
that links and interchanges with other means of
transport
A transport system that is consistent with the real
needs of people living in different parts of South Africa
and with differing abilities to afford travel
A transport system that charges the traveller a fair
reflection of the costs of making a journey; financial,
social and environmental
A transport system that supports focused funding of
transport priorities
Developed sufficient institutional human capital to
drive the vision of transport
A transport response that supports rural transport
development.
3) Define the needs – ask: “What problem am I trying to
solve and why is it important to implement the project or
option?” and define any gaps that needs to be filled by
the proposed option intervention.
13.3.3 Identifying the preferred intervention
Once the need has been established, interventions or
options are fully generated, detailed and defined. In some
instances, stakeholder engagement may be necessary during
this step to allow input into the intervention/option
formulation process. The proposed toolkit defined in this
chapter will be a useful tool in this step.
The next step in the option selection process is to undertake
a high-level sift of the interventions/options identified. This is
carried out by asking the following question:
“Does the intervention/option support the strategic vision and
priorities of transport in terms of the following high-level
criteria:
Economic
Environmental
Access & Inclusion
Safety & Wellbeing
Integration?”
The reason for asking these questions is to establish what
interventions or options do not meet the very basic
requirements of supporting the strategic vision. When the
answer to the question is NO for a specific project or option
or package of options, it will be excluded from the detailed
appraisal process (using the common basis assessment
framework). When the answer is YES, the intervention or
option is included in the detailed appraisal process (using
the common basis assessment framework).
By following this logic, the problem, its likely solutions and
appropriate transport objectives are linked.
13.3.4 Prioritisation using the common basis
assessment framework
Once interventions have been developed, they will need to
be prioritised using a common basis assessment during the
third stage of appraisal.
This common basis assessment could be used by all
authorities and stakeholders to prioritise and make decisions
about option prioritisation to ensure that they help achieve
the vision of a coordinated transport system before
developing individual business cases for each project.
Because of funding constraints, projects inevitably compete
for scarce resources, and prioritisation helps define which
project supports national aspirations most and, therefore,
warrants further investigation for funding. The guiding
principle should always be that the project should provide
overall value.
In prioritising among different interventions or options, it will
be important to have a clear view of these interventions’ or
options’ real impacts, their relative costs, benefits and the
extent to which they meet national and local strategic
objectives. Interventions or options should be prioritised
using the conventional transport assessment criteria of
accessibility, economy, environment, safety and integration
and the national strategic objectives and wider local
objectives of the authority concerned reflected in the
common basis assessment.
Criteria can help to determine the overall value and priority
in meeting the wider aims of the Department of Transport
and the particular needs of local areas, together with the
vision and objectives of the NATMAP 2050. Only those
interventions/options ranked very strongly should be
converted into projects and considered for individual
business case development or a feasibility study in securing
funding or be discarded.
Table 13-1 below illustrates the common basis assessment
matrix.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-13
Detailed option evaluation will be a mixture of qualitative
and quantitative analysis. The common basis assessment
framework will be used to evaluate and prioritise the options.
The purpose of the appraisal framework is to help prioritise
and rank a large number of options, to reduce the number
and to package them, where possible. The process of
appraisal is qualitative – judgement is passed over the effect/
impact of the options in terms of achieving transport
objectives.
The common basis assessment framework has the following
components and/or input requirements:
High-level transport criteria – provide association with
development objectives
Descriptive criteria – describe and give more meaning to
the high-level criteria
Measurement criteria – measure the impact of an option
on a development objective
Indicators – provide direction to the measurement i.e.
positive or negative, or numerically, a great deal (80%) or
not a lot (20%)
Cost/asset attribute – shows whether the measurement
criteria and indicators are cost or benefits or assets
Unit – this attribute (e.g. +++ or %) reflects the numerical
scale by means of which the actual measurement/score is
described, e.g. the impact of option X on the economic
development objective measured in terms of journey time
reduction (as a measurement criterion) is 50% or (++).
Weights – are assigned to measurement criteria and
indicators to differentiate their relative importance –
because the appraiser may consider some measurement
criteria to be more important than others.
There are two types of weights, Weight Niveau 1, and
Weight Niveau 2.
Weight Niveau 1 is a weight assigned to each
measurement criterion, whereas Weight Niveau 2 is a
weight assigned to each indicator.
The sum of the weights assigned to each Weight
Niveau 1 equals 1.00 and the weights assigned to
Weight Niveau 2 also equates to 1.00.
The weights are manually assigned by the appraiser –
the appraiser makes a judgement.
Interventions or options – are the interventions identified
to address the needs or problems.
In evaluating and scoring the interventions/options, their
impact on the development objectives are assessed,
measured in terms of the criteria and indicators. Weights
need to be assigned to each of the measurement criteria to
reflect that some high-level criteria may be more important
than others (or they may all be weighted equally).
Scoring the options is the product of asking the following
question:
“To what extent does the option support the transport
objectives measured in terms of the X criterion and
indicators?”
Scoring could use a ratio scale – nominal, interval, ordinal,
etc. For example, where the ratio scale is applied, ask the
question (Screening 1): “To what extent does the option
support particular objectives in terms of the measurement
criteria and indicators?” For example, the answer could be
either 70%, or, if a ---/+++ scale is used, ++ (suggesting the
projects/options contribute quite a lot to achieving the
objectives).
Because it is difficult to decide which projects/options are
more important than others if many projects/ options are
evaluated, a suitable software programme could be used.
The result of the option selection process p (see Figure 13-
1) is interventions or options scored and ranked in terms of
meeting overall transport objectives and priority. Following
this process, some stakeholders may feel that some
interventions/options should be more important than others
and could be scored/ranked differently. If this occurs,
sensitivity testing should be undertaken either by using
suitable software or, for smaller scale option selection
processes, by manually adjusting the weights and scores
assigned.
Once the ranking of projects or options is concluded, the
outcome of the process needs to be reported to the NTF or
local partnership. In turn, application will be made for
funding, which may, in turn, require additional analysis in the
form of individual business case development. Once these
steps have been concluded, the project nears
implementation in the form of detail design or some other
form of implementation.
PAGE 13-14 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
COMMON BASIS ASSESSMENT STRATEGIES
∑ = 1 ∑ = 1 1 2 3 n
HIGH-LEVEL
APPRAISAL
CRITERIA
Appraisal criteria descriptor Measurement criteria Indicators
Large
negative (LN)
- Large
positive (LP)
Cost/
asset
Unit Weight
Niveau
1
Weight
Niveau
2
Economic Transport economic
efficiency: Consumers
Reduction in journey time LN - LP C / A %
Improvement of train frequencies LN - LP C / A %
Journey ambience LN - LP C / A %
Reliability/punctuality LN - LP C / A %
Transport economic
efficiency: Business users &
transport providers
Capital cost LN - LP C / A %
Operating cost LN - LP C / A %
Revenue LN - LP C / A %
Public accounts Cost to public sector LN - LP C / A %
Scope to lever private finance LN - LP C / A %
Benefit cost ratio/cost coverage ratio LN - LP C / A %
Wider economic effects/
impacts
Wider economic effects/impacts LN - LP C / A %
Environmental Air quality Change in traffic flow LN - LP C / A %
Regional and wider air quality LN - LP C / A %
Green house gas LN - LP C / A %
Noise Local/regional noise pollution LN - LP C / A %
Change in traffic flow LN - LP C / A %
Landscape & biodiversity Change in landscape & biodiversity LN - LP C / A %
Heritage of historic resources LN - LP C / A %
Physical fitness LN - LP C / A %
Water environment LN - LP C / A %
Access/inclusion Access to the transport
system
Personal affordability LN - LP C / A %
Reduction in barriers (enhanced access to
transport services)
LN - LP C / A %
Settlement severance LN - LP C / A %
Persons of reduced mobility
(e.g. paraplegic)
Change facilities/conditions for mobility-impaired
customers
LN - LP C / A %
Safety & well-
being
Accidents Change in accidents LN - LP C / A %
Reduced risk associated with travelling LN - LP C / A %
Security Personal vulnerability LN - LP C / A %
Integration Land use policy Contribution to transport land use integration LN - LP C / A %
Connection with other public transport modes LN - LP C / A %
Supportive of other relevant government policies LN - LP C / A %
TABLE 13-1: COMMON BASIS ASSESSMENT FRAMEWORK
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-15
13.4 Outline Guidance for Transport
Investment
Where the common basis assessment framework identified a
prioritised list of interventions that are worthy of further
examination and development, the outline guidance for
transport investment provides a framework for additional
development options for intervention into projects for future
implementation. The focus is on appraising the affordability,
value for money and deliverability of interventions to
determine if they have a sufficient business case to be taken
forward for implementation.
The guidance is intended to complement and not to replace
existing DoT processes and reflect the medium-term
expenditure framework capital planning guidelines
(Department of National Treasury, 2012 & 2013). The
guidance provided is broadly aligned with the feasibility
study requirements for PPP projects as required by National
Treasury (under Regulation 16).1
The guidance is an outline, requires further detailed work
and is an extension of the proposals outlined in Chapter 10.
The outline guidance for transport investment focuses on a
four-staged approach, as illustrated in Figure 13-2:
1) Confirming the strategic case
2) Appraising the impact and the cost-benefit analysis of
the project (in both financial and wider economic terms)
3) Identifying the preferred project delivery model (also
see Chapter 10) and broad implementation and
procurement strategy
1 The outline guidance for transport investment has been informed by the
gateway project review process developed by the Office of Government
Commerce (OGC) in the United Kingdom and introduced across Central Civil
Government as part of its modernisation agenda to support the delivery of
improved public services in 2001 (United Kingdom, 2007). The gateway review
process is a series of short, focused, independent peer reviews at key stages of
a project or programme. The reviews highlight risks and issues that, if not
addressed, will threaten successful delivery.
FIGURE 13-2: OUTLINE GUIDANCE FOR TRANSPORT INVESTMENT – FOUR-STAGE APPROACH
PAGE 13-16 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
4) Considering whether the project is deliverable in terms
of how it will be funded (affordability) and implemented.
In using this approach, some important enabling steps
should be taken:
Clear gateway reviews at the end of each stage to inform
the eventual decision as to whether or not a business case
exists to implement the intervention
Appointment of one responsible official to champion or
sponsor the development of the business case
In some instances, particularly when the intervention is of
a sufficiently large scale, a representative or small project
working group should be established to deal with
emerging technical or appraisal issues. This should
comprise relevant representatives from across
departments.
The outline guidance for transport investment can be
adopted to track through these four stages. It is important to
note that this is purely a typical process that can be followed,
and the recommendation is that further detailed work be
done to elaborate and confirm the process. It is specifically
recommended that this process be confirmed with input
from the National Treasury and formalised in a guidance
document.
13.4.1 Stage 1 – Confirming the strategic case
This stage focuses on confirming that a robust and accepted
case for change exists and that it aligns with the transport
objectives. A number of steps should be taken in this stage,
as described below.
IDENTIFYING THE STRATEGIC CASE
A – Identifying the problem and linking it to the
NATMAP 2050 transport objectives – An essential first task
is to identify the problem that needs to be addressed and
confirm that it is hindering the achievement of the wider
transport objectives defined in the NATMAP 2050. For
example, poor public transport links might be a problem
between cities A and B (either due to journey time or
frequency), which could jeopardise the objective of focusing
economic development on an important national or
provincial corridor.
The starting point must always be to identify the problem
and not a project or intervention. Otherwise, it will not be
possible to ensure that the case for change is objective-led
and there is a risk that projects will be taken forward for the
sake of these projects rather than that of meeting objectives.
There can only be a strategic case for change if the change
addresses the objectives defined in the NATMAP 2050. If the
intervention or project was prioritised in the NATMAP 2050,
then the strategic case can be considered proven.
B – Identifying possible options for change – The next step
is to list potential options for change to overcome the
identified problem by asking a couple of questions:
What is the option’s output in terms of changes to, for
example, the timetable or the capacity of a particular
public transport service?
What input does the option require? A timetable change?
Additional resources (for example, buses, taxis, rolling
stock, resources or crew)? An investment in infrastructure
change (improvements or additional network capacity)?
C – Sifting options – If the option did not originate from an
intervention listed in the NATMAP 2050, then a high-level sift
should be undertaken using the high-level sift process
described in Section 13.3 above to identify which option, or
short list of options, should be taken forward. The main
purpose of the high-level sift is to identify and eliminate
options that fail to support the transport objectives defined
in the NATMAP 2050. The sift process should consider
factors such as:
Technical: what operational or capacity-enhancing
purpose does the investment serve?
Choices: what alternatives have been considered and why
are they inferior?
Market: what customer constituency does the investment
serve?
Economic: what transport and wider economic needs will
be met by the investment?
Commercial: what revenues will be enhanced and what
costs will be reduced/controlled? Are the implementation
costs proportionate to the likely commercial and wider
benefits?
CHECKLIST SUMMARY
To further strengthen the decision-making process, a
checklist summary is developed to ensure that the case for
change is objective-led and options or projects are not taken
forward for the sake of these projects but rather for that of
meeting transport objectives. The following questions must
be asked as part of the checklist:
Has the strategic case been identified? Is there a clear
problem or need that would impact on the achievement
of one or more of the transport objectives listed in the
NATMAP 2050?
Has a long list of options to address the problem or need
been identified and defined?
Have the options been sifted to a shortlist of one or
more?
Has the process been discussed with relevant
stakeholders (e.g. national, provincial or municipal
government)?
Does the project’s development have a suitable
governance structure?
STRATEGIC CASE GATEWAY REVIEW
The final step in this stage is to establish if the strategic case
for the investment to overcome the identified problem has
been established and if a set of options has been identified
for appraisal. The review should be chaired by an appropriate
official who is independent of the project and who will verify
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-17
whether the steps above have been taken and followed. If all
the steps have not been taken, the option fails the gateway
test and does not pass to the next stage but is referred back
for further consideration.
13.4.2 Stage 2 – Appraising the impact
Having established the strategic case in Stage 1, the
affordability and potential value for money of the option or
options now needs to be determined. Appraisal will consider
the implementation cost (in capital and operational
expenditure) and the benefits that will be delivered
financially and in wider economic terms.
APPRAISAL APPROACH AND CONTENT
The appraisal process is an important step in developing a
project, irrespective of whether the development involves a
timetable change or more significant investment. This
process may be accompanied by a feasibility study or
appraisal report covering the strategic case (including the
objective-led identification of needs and options) and the
appraisal. It is not the purpose of this paper to be
prescriptive in terms of the type of appraisal used (e.g.
benefit costs and other quantitative and qualitative
methods); rather, it seeks to define typical components to be
considered.
A – Problems and options – The output of Stage 1 will be a
list of one or more options for appraisal and development.
For each option, it will include the outputs that they are
expected to deliver and the inputs required in terms of
resources, staff and investment.
Inevitably, some further work will be required to determine
more specific needs (e.g. detail) for each option. Much of this
information will need to be provided by the relevant
authority using either rule of thumb assumptions or the
outputs of more detailed analysis. It is important that the
official responsible for developing the business case robustly
challenge any assumptions. This is to ensure that the
proposed changes are caused by the proposed option and
are, therefore, relevant to the business case for this option.
It may also be necessary to do more work to define the
expected output in more detail to enable the estimation of
wider benefits (and, in some instances, the calculation of
costs, too). In completing this, it is important to:
List the assumptions used
Tabulate them for each option so that the base
assumptions that underpin the remaining appraisal work
are clearly visible and understood.
B – Capital costs – Capital costs for each option need to be
identified. These arise, for example, from the need for
additional infrastructure costs. For infrastructure, the origin
of capital costs for the appraisal will be dependent on the
status of the project:
If the options are pre-FEL, then the cost can be calculated
at a per kilometre level or using the cost of a similar
recent intervention. It would be sensible to add some
contingency to reflect uncertainties around the design
cost (circa 50%).
If at FEL stages then the costs can be taken from the
design. In doing this, it is important that basic questions
be asked, such as: Has the project been properly specified
(using a user requirements specification)? Parallel
engineering feasibility study outputs should be able to
assist here.
It will be important to confirm that the capital costs are
relevant to the enhancement. Any other costs that are not
relevant to the appraisal, such as renewals costs, should
not be included in the appraisal.
C – Operating costs – Operating costs should be detailed, if
appropriate. It is important that the assumptions used to
estimate them be clear. Operating cost estimates should be
prepared for each year across the period of the appraisal.
D – Revenue – Assess the revenue potential of the
intervention or project. If considering public transport
options, judgement and some pragmatic assumptions will be
required for. For example:
The achievable loadings of any additional or longer-
distance service proposed could be informed by demand
today on the existing service or on a parallel corridor
Fares per journey need to be informed by the level of
competition from other modes (e.g. relative journey time
or fares)
Suitable growth factors (either local relevant employment
growth or local economic growth forecasts)
Some consideration of demand build up on new or
radically altered services over two to three years as
passengers adapt their travel behaviour and location
(typically 30% to 75% to 100% over three years)
A clear statement of any assumptions made, particularly
for competing modes. These are helpful for sensitivity
testing.
E – Wider benefits – The level and scale of the investment
will guide the degree to which wider benefits need to be
considered. Revenue and costs alone do not reflect the full
impact of an investment. Transport improvements also help
to:
Protect and enhance the environment
Improve safety
Contribute to an efficient economy, supporting economic
development and sustainable economic growth in
appropriate locations
Promote accessibility to everyday facilities for all
Promote the integration of all forms of transport and land
use planning, leading to a better, more efficient transport
system.
PAGE 13-18 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
In the absence of definitive guidance from national
government, the following items should be considered.
Where possible, these items should be quantified (working
closely with stakeholders to access earlier reports where
available). Otherwise, the impacts should be described and
indicators (such as demand forecasts) used to indicate their
magnitude of impact. Building on the public transport
example above, items for consideration could include:
Time and quality benefits to current users from reduced
journey (arising from faster and more frequent services)
and/or reduced crowding (arising from train lengthening
or more frequent services)
Benefits to users of other public transport systems (where
rail might relieve demand growth on parallel networks)
Benefits to road-based transport from a switch to rail
reducing highway congestion and potentially accidents
The environmental value of the option
Improvements in accessibility to key nodes; for example,
employment centres both in the city centre and at other
nodes;
Improvements to integration
Wider economic benefits including:
Employment creation (construction and operation)
The impact of transformational changes (which, if
overlooked, can lead to their being rejected on narrow
transport economic appraisal grounds) supporting
agglomeration by delivering productivity benefits from
enabling the concentration of economic activity
(through location and the reduction of the cost and
time of travel) and enhancing the labour market by
creating more employment through improving access
to the supply of labour and more productive jobs
(thereby increasing incomes).
F – Completing the appraisal – To complete the appraisal,
the scope and assumptions of the appraisal need to be
defined:
The scope should reconfirm the options being evaluated
and also the degree to which the appraisal will be
financial or economic, depending on the information
available
The key risks and contingencies that need sensitivity
testing – the main assumptions used for calculating the
appraisal inputs (costs, revenue and benefits) should be
reviewed
The record of appraisal assumptions, which should include
the length of the appraisal (this normally links to asset life
but many appraisal approaches use 30 years and this
provides a good comparison benchmark), the discount
rate to be used and other key inputs.
The appraisal process should answer the following questions:
Which option delivers the best value for money?
Is the option affordable in terms of its operating and
capital costs?
Results should be presented as follows:
A benefit–cost ratio (at least the financial ratio) based on
the appraisal results discounted over 30 years
Any funding requirement in terms of both changes to net
revenue (revenue–operating costs) from operations and
any capital costs – this could be presented annually and in
net present value terms
The impact of adding in the economic benefits where
quantifiable on the benefit–cost ratio and supplemented
with qualitative analysis, where this is available
Confirmation that the options are appropriate to the need
Quantified sensitivity testing of key assumptions, typically
significant capital and operating cost items and revenue.
This should include changes to the absolute quantities
and delays in completing the scheme or achieving
forecast revenue
Conclusions on value for money and likely affordability
Some indication of key risks from the sensitivity testing
and other key indicators, such as the payback period.
CHECKLIST SUMMARY
To strengthen the appraisal process, a checklist summary is
developed to ensure that the options identified for
implementation are robustly defendable and meet clear
development objectives. The following questions must be
asked as part of the checklist:
Have the options been fully defined in terms of their
outputs and required inputs?
Has an analysis been completed and robustly challenged?
Are any capital costs supported by a FEL stage’s outputs
or are they very early estimates based on cost drivers or
equivalent schemes (with contingency added)?
Have the appraisal assumptions been identified, included
the appraisal term and the dates of key events, such as
construction of new infrastructure?
Are quantities and unit costs available for all capital and
operating costs and are all the assumptions behind their
calculation documented?
Have revenue forecasts been prepared and are all the
assumptions behind their calculation documented?
Have any wider benefits been identified and quantified?
Has a discounted cash flow been prepared?
Have sensitivity tests been undertaken?
Have the options with the greatest value for money been
identified and have conclusions been drawn?
Have any funding requirements in terms of operations
and construction been identified and are they deemed to
be affordable?
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-19
APPRAISAL GATEWAY REVIEW
This final step will establish if the value for money case for
the investment has been established, is likely to be
affordable and does not carry any significant risks that
cannot be mitigated. The review should be chaired by a
senior official who is independent of the project.
13.4.3 Stage 3 – Delivery model options analysis
Projects may be executed in various ways along a spectrum
of pure public to pure private provision. Stage 3 of the
process seeks to ensure that a variety of project delivery
modalities are explored and that the best option is selected
for implementation. The steps to be followed in this regard
are broadly aligned with Module 4 of the National Treasury
PPP manual.
The proposed process should cover at least the following
steps:
STEP 1: LIST ALL THE SOLUTION OPTIONS THE
INSTITUTION HAS CONSIDERED
The first step would be to list the possible procurement
options that could be considered for the delivery of the
project. The list must cover the range of the most viable
solution options for providing the specified outputs of the
required service.
STEP 2: EVALUATE EACH SOLUTION OPTION
The purpose of the evaluation is to:
Identify the advantages and disadvantages of each
solution option
Examine the risks and benefits for and potential impacts
on the government of each option
Identify which of the solution options provide the best
value for money to the government.
It is suggested that the following basic information for each
option be presented (in line with Module 4 Stage 2 of the
PPP guidelines:
1) Brief description
2) Financial impacts
3) Funding and affordability
4) Risk
5) BEE and other socio-economic aspects
6) Service delivery arrangements
7) Transitional management issues
8) Technical analysis
9) Site issues
10) Legislation and regulations
11) Human resources
12) Market capability and appetite
13) Qualitative factors.
STEP 3: CHOOSE THE BEST SOLUTION OPTION
Once each solution option has been evaluated, a matrix
approach should be used to weigh up the evaluation of each
option against the others to assist in the choice of the best
one (the list of evaluation items in Step 2). In this last step of
the solution options analysis stage, recommendations should
be made as to which options should be pursued to the next
stage.
13.4.4 Stage 4 – Implementation
This stage confirms that the project is deliverable in terms of
how it will be funded, designed, planned and implemented.
This completes the development of the business case. In
reality, some of the tasks listed below may have been
completed in parallel with Stage 2 but this stage provides an
opportunity to formally review them.
TASKS/CHECKLIST SUMMARY
The following tasks need to be completed to confirm that
the project is deliverable in terms of how it will be funded,
designed, planned:
Identify any funding requirement for the value for money
option and from where will it be sourced (internal
funding, yearly MTEF or other stakeholders). This should
include both the capital cost of implementation and any
future increased operating subsidy.
Confirm that stakeholder engagement has occurred and
that there are no issues from key external national or
regional stakeholders.
Confirm that a robust project implementation plan is in
place that comprises:
project specifications and, at least, outline designs
a realistic project timetable and implementation
programme
an environmental impact assessment has been
completed where necessary and any resulting cost
incorporated into the business case and any necessary
consents identified and a plan developed for achieving
them
whether the department has the capacity to procure
the design and project planning or whether the work
needs to be outsourced
a named project champion, governance structure and
the staff and material resources to implement the
project
a robust plan for managing and mitigating a set of
identified key project risks.
IMPLEMENTATION GATEWAY REVIEW
This step will conclude Stage 3 and establish if the preferred
option identified in Stage 2 can be implemented and will
mark the completion of the business case for investment.
The review should be chaired by a senior official who is
independent of the project.
PAGE 13-20 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
13.5 Measure, Monitor, Evaluate (KPIs)
Of equal importance to delivering the NATMAP 2050 is the
need to measure whether the overall vision, objectives and
priorities of transport are being achieved. Progress against
objectives can be measured using key performance
indicators. Applying outcome KPIs will help ensure a
balanced view at the national, regional and global levels of
the critical role of transport services in reducing poverty,
facilitating growth and contributing to the achievement of
key development targets and sustainability. An output
indicator is defined as a variable that is selected and defined
to measure the success towards achieving progress and
objectives, whereas a target is defined as a specific, realistic,
measurable aim.
Table 13-2 below details KPIs to assess or track progress
against national strategic transport objectives aligned to
aspirations reflected in the NDP 2030 and the emerging
NLTSF. The KPIs and, in particular, the targets defined will
require refinement over time and agreement by relevant
stakeholders. Over time, the indicators and targets could
show whether the interventions and policy directions in
transport are successful or not. The tracking of indicators will
be executed by data collection through the establishment of
the national multimodal transport data bank proposed
earlier in this report.
Monitoring and measuring the KPIs and targets will be a
cross-sectoral undertaking and will require cross-sectoral
implementation.
A measure of the success with which an integrated and
efficient transport system is achieved is the level of certainty
about completing journeys in the planned time. Journey time
variability is something that is not measured on all modes of
transport at present. Consideration will be given as to how to
achieve this. The DoT will be developing and evaluating a
number of different techniques for measuring journey time
and travel journey time variability on strategic roads/trunk
routes in metropolitan areas. This information and the
information available on rail journey time variability will be
used to establish a baseline for long-distance road and rail
journeys. The information will also be used to monitor
progress against suitable measures and targets.
Another important aim is to reduce car dependence. This is
particularly relevant when roads are at their busiest. When a
greater proportion of those travelling to work and higher
education establishments are persuaded to travel by means
other than by car, for example by public transport, cycling or
walking, it will improve the environment and people’s health
and enable those who have to use the roads to do so with
greater efficiency. The aim is that by 2020 about 70% of
commuting to work trips will take place by means other than
by car. Progress will be measured through the National
Household Survey. Techniques will be developed to monitor
how younger children travel to school to encourage the
habit of using a sustainable means of transport at an early
age.
Road and rail safety is an important issue in terms of
people’s health, the burden on health services and the ability
to contribute economically and culturally to society as
consisting of individuals. Accidents also cause major
disruption to the efficient operation of the transport system.
The number of road accidents, particularly ones involving
children and pedestrians, is far too high. The aim is to
achieve by 2025:
50% reduction in the number of people killed or seriously
injured in road and rail accidents
10% reduction in fatalities year on year.
The provision and use of public transport is increasingly
important. A target is to achieve a one-third increase in the
proportion of households in rural areas within about 10
minutes’ walk of an hourly bus service by 2020. Whilst
scheduled stopping bus services and the MBT industry will
play an important role in meeting the need for public
transport, other means, such as more flexible forms of
transport, including community schemes, flexibly routed
buses and subsidised taxi schemes, can, in many instances,
provide a more effective service, particularly in rural areas.
Accessibility to transport services is an important aim of the
NATMAP 2050 and it is important that an indicator and
target that are truly representative and achievable be chosen.
By 2020, a representative accessibility target for non-private
forms of transport appropriate for South Africa will,
therefore, be developed. This work will build on the work
being carried out by other government departments in their
review of public transport.
Progress will be reported annually, where possible, and the
use of indicators in a full review every 5 years.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-21
TRANSPORT
THEMES
KPI MEASUREMENT TARGET
Integrated
transport
planning
Journey time to work (door-to-door) by all modes Travel time in minutes < hour (urban) / < 30min (rural)
Rate of use of urban land Per capita land use – m2 of land used/resident % densification (urban areas)
Traffic network performance
Average peak-period journey speed (km/h), traffic
flow rate, queue lengths, relative to a target
journey speed (km/hr)
LOS D in peak hour traffic (urban)
LOS B in peak hour traffic (rural)
Densification of corridors and transit-orientated developments (increase in
GLA and/or housing units) that are spatially, socially and economically
integrated
GLA and/or housing units 50 projects annually delivered by the National
Department of Housing
Quality walking links to main public transport nodes in 20min or 1km radii km km of NMT network created
Increase commuting to work trips by public transport and walking % 1% cycling mode share in work trips by 2020
Full cycle lane within a radius of 5km from main PT nodes km km of NMT network created
Public transport Increase in proportion of households in rural areas within about 2km of a
public transport service % of households 40% by 2020
Proportion of households in urban areas within 1km walking distance from an
IRPTN service % of households 85% by 2020
Increase commuting to work trips by public transport % modal share of road based travel (mode split) 70% by 2020
Existing service pattern Frequency Every 10 min during peak hour on trunk roads and rail
and every 20–30 min during off-peak by 2020
16 to 24 hr services, supporting hybrid service structure incorporating
elements of both trunk-feeder services and direct services Frequency
Every 5 min during peak hour on trunk roads and rail
and every 10–30 min during off-peak by 2050
Reliability of scheduled services % 95%
Implementation of approved plans and initiatives (e.g. IRPTNs) % increase in the use of public transport 3% increase in passenger trips per mode per annum
to 2020.
Contract, operational requirements and performance specifications developed
for scholar transport service providers Performance specification Implemented in all provinces by 2020
TABLE 13-2: KEY PERFORMANCE INDICATORS (IMPACT OR OUTCOME INDICATORS)
PAGE 13-22 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
TRANSPORT
THEMES
KPI MEASUREMENT TARGET
Environment Greenhouse gas emissions from all road-based transport Total GHG emission (Mt) Reduce GHG emissions by 5% from current levels by 2025
34% CO2 reduction by 2020 and 42% CO2 reduction by 2025
Energy efficiency % improvement 12% by 2015
Environmental education Number of environmental awareness
activities conducted 8 per annum (linked to environmental calendar days)
Freight transport
Reduction in overloading by enforcing limits on gross vehicle mass % Reduce average number of overloaded trucks on provincial and
national roads by x%
Improve heavy goods vehicle safety performance, roadworthiness, and
self-regulation % % increase in RTMS certification and compliance
Infrastructure
(roads and rail)
Preservation of national, provincial and local road infrastructure
Thousands of 2-lane-kilometers Improve by X% from "fair" or "good" by 2020.
Thousands of 2-lane-kilometers Reduce road surface with very poor condition by 5% in 2025
Road safety
Reduction in the number of crashes expressed as the number of people
per 100 million vehicle kilometres
Total fatalities and injuries per
100 000km
50% reduction in the number of people killed or seriously injured in
road accidents by 2025
10% reduction in fatalities year on year
Rural transport Improve rural access index to rural population having access to some
form of transport Transport accessibility Improve rural accessibility to 50% by 2025
Rural access improved to eliminate constraints on the time which all
children have to participate in education % % of schools with reliable access
Public transport in rural areas
% of district municipalities
implementing the integrated public
transport network strategy
Improve public transport in rural areas by 40% by 2019 against plan
TABLE 13-2: KEY PERFORMANCE INDICATORS (IMPACT OR OUTCOME INDICATORS) - Continued
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-23
13.6 Focus on Delivery and
Implementation of the
NATMAP 2050
Implementing the interventions and projects defined in the
NATMAP 2050 is very important and, therefore, needs
specific attention. It is the primary role of the DoT to ensure
the delivery of the NATMAP 2050 with support from its
partners when appropriate. The NATMAP 2050 is not a plan
that has defined funded projects for delivery. It is the
translation of the vision, objectives and priorities in transport
into interventions to bring about a sustainable transport
system by assessing a wide range of projects with a variety of
vertical and horizontal stakeholder implications. Essentially,
everyone who has a part to play needs to make
complementary and coordinated decisions when formulating
and delivering their transport interventions and projects. The
implication, therefore, is that those who deliver transport
infrastructure and services to do so within the context of this
plan.
In addition to providing the leadership necessary to achieve
the vision, objectives and priorities defined, the DoT has a
direct role in supporting the delivery of strategic
infrastructure and services.
A very important part of the transport system is administered
and delivered by the agencies and municipalities. The plan
aims to reflect the role of local authorities in meeting
provincial and national needs but it does not aim to identify
or prescribe in detail how they should achieve this goal.
The plan recommends the establishment of a National
Transport Forum, along with local partnerships, to
strengthen decision-making in land use and transport
planning as well as working in a more integrated manner.
This will overcome, amongst other things, issues of skill
transfer and the absence of dedicated staff.
Collaboration between several other important authorities
and other government departments, including the
Departments of Rural Development & Land Reform,
Planning, Monitoring and Evaluation, Human Settlements,
Trade and Industry, and Economic Development and the
National Planning Commission, is also essential.
The DoT, through the utilisation of the National Transport
Forum and local partnerships, will provide technical support
to all subordinate levels of government in relation to land
use and transport planning. At an operational level, Figure
13-3 provides an example how to use the NATMAP 2050 in
delivering interventions and projects. It is important to note
that the steps highlighted in blue are the steps taken within
the NATMAP 2050 process, whilst the remaining steps are
ones that follow the NATMAP 2050’s development. The
figure also reflects alignment with the front-end loading
process (FEL – 1 to 4).
Figure 13-3 highlights the following steps in the decision-
making process typically recommended in finding solutions
to problems:
1) Define the needs, objectives and strategic case that
confirm an issue has to be addressed
2) Identify the preferred intervention
3) Apply the common basis assessment framework to
prioritise interventions/options in meeting transport
objectives
4) Select the highest-ranking options/interventions to be
scrutinised in terms of the guidance on transport
investment
5) Undertake individual business cases for each
intervention selected using an appropriate delivery
model
6) Apply for funding via the National Transport Forum/
local partnership or appropriate funding agency
7) Secure funding
8) Implement project
9) Measure the successes of the project
10) Monitor and review.
It is important to note that the framework for using the
NATMAP 2050 outlined above serves as a guide to decision-
making. There are no hard and fast rules when it comes to
prioritisation. It is, however, important to adopt the logic
presented by the framework to ensure that the starting point
is always the identification of the problem and not a project
or intervention. Otherwise, it will not be possible to ensure
that the case for change is objective-led and there is a risk
that projects are taken forward for the sake of these projects
rather than for that of meeting objectives.
PAGE 13-24 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
FIGURE 13-3: FRAMEWORK FOR USING NATMAP 2050
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-25
13.7 Demonstrating Integration and
Alignment
The framework for using the NATMAP 2050 described above
provides a useful guide to support decision-making. It is also
an extremely useful supporting integration and alignment
tool to a variety of interventions and/or projects across
different sectors. Whilst there are no hard and fast rules, this
section demonstrates the real life application of the
framework. In transport and land use, we often find
misalignment in the planning and delivery of infrastructure
and in policies and services, which results in adverse impacts
on the economy and road users. By adopting the framework
described above, it is possible to reduce these negative
outcomes.
This sub-section demonstrates the application of the
framework and the option selection process. It demonstrates
how the NATMAP 2050 should be used to create alignment,
integration and coordination between selected strategic
integrated projects (SIPs), and other sectors. It will show how
the NATMAP 2050 bridges the gap between disjointed
planning and implementation practices, leaving a transport
system that fully supports cross-sectoral initiatives and
projects.
13.7.1 Integration and alignment defined
There are many different interpretations and meanings
attached to the alignment and an integrated approach in
transportation, land use and built environment planning and
delivery. A general description of the approach is a process
by means of which people from different backgrounds, from
different parts of government, and at all levels, are engaged
to find the alternative development solution or alternative
with the highest collective socio-economic impact at
optimum cost. Integration, therefore, has to occur on all
levels – vertical integration, and across all disciplines –
horizontal integration, when projects are planned and
delivered (illustrated in Figure 13-4).
FIGURE 13-4: VERTICAL AND HORIZONTAL INTEGRATION CONCEPT
PAGE 13-26 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
Vertical integration:
Vertical integration is about bringing policies, vision
and intent from different levels of government
together to provide a vision and to ensure that projects
align and are integrated from national to local levels.
To this end, the vision provided in the NATMAP 2050
for transport in South Africa guides the development
of solutions and technology, which, in turn, are
implemented by provinces and local authorities.
However, a bottom-up approach is also required to
adapt the vision and strategy based on changes in the
local context. During the development of the NATMAP
2050, both the bottom-up and top-down approaches
were followed to develop the vision and strategies.
These need to be revised periodically to ensure that
the vision aligns with changes on the ground.
Horizontal integration:
Horizontal integration is about organising and
coordinating disciplines required to deliver a specific
project or projects in a specific area and normally refers
to all the actors or service delivery agents operating at
that level, even if some of them may be the delivery
function of at national, provincial or district level.
13.7.2 Integration and alignment applied
Integration and alignment need to occur at national,
provincial and local level. To demonstrate alignment on
national, provincial, and local level, a concise description of
the national projects for SIP 1, 2, 3 and 5 are provided and,
subsequently, projects within in SIP 1, 2 and 3 are detailed at
both provincial and local level through the application of the
option selection process.
13.7.3 National integration
The government adopted a national infrastructure plan in
2012 that intends to transform our economic landscape
while simultaneously creating significant numbers of new
jobs, and to strengthen the delivery of basic services. The
plan also supports the integration of African economies.
The NATMAP 2050 supports the implementation of the 18
strategic integrated projects (SIPs) in the NIP and NDP
through its various transport interventions.
The following maps reflect, at national level, an integrated
view of NATMAP 2050, NIP, NDP, Department of Human
Settlements, DPE and DTI projects as they relate to the five
catalytic geographically focused SIPs.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-27
SIP 1: UNLOCKING THE NORTHERN MINERAL BELT
WITH WATERBERG AS CATALYST
SIP 1 will unlock the economic development potential of the
rich mineral resources in the northern mineral belt around
Waterberg/Lephalale. Urban development in Waterberg will
be the first major post-apartheid new urban centre and will
be a green development project. Shifting coal from road to
rail in Mpumalanga and upgrading the rail capacity from
Waterberg to Mpumalanga and Richards Bay will be key
transport enablers.
PROJECT CATEGORY MAP REF NO
PROJECT NAMES
NATMAP 2050 road
projects
56
63
68
69
52
Pongola and eDumbe Road upgrade
Richards Bay–Melmoth new heavy-haul road
Mpumalanga coal haulage roads upgrade
Limpopo coal haulage roads upgrade
Maloto Road upgrade
NATMAP 2050 rail freight
projects
73
78
72
74
104
Matlabas–Vaalwater–Modimolle new rail link
South Africa–Swaziland new rail link
Ermelo–Richards Bay rail upgrade
Lephalale–Botswana new rail link
Waterberg–Mpumalanga–Richards Bay export coal line expansion
NATMAP 2050 passenger
rail projects
31
33
28
Tshwane–Mbombela passenger rail
eMalahleni & Steve Tshwete passenger link with Maloto Rail corridor & Gautrain
Moloto passenger rail
NATMAP 2050 port
projects
18 Port of Richards Bay expansion
NATMAP 2050 airport
projects
7
12
Richards Bay Airport upgrade
Polokwane aerotropolis
NATMAP 2050 freight
projects
116 Richards Bay SEZ
Municipal infrastructure
projects (SIP6)
154
158
159
161
162
163
164
Amajuba District
Umkhanyakude District
Umzinyathi District
Uthungulu District
Zululand District
Capricorn District
Greater Sekhukhune District
Department of Human
Settlements projects
143
144
Lephalale Housing
Mining towns – Thabazimbi & Greater Tubatse (LP ), Emalahleni, Steve Tshwete
& Thaba Chweu (MP)
Agri-logistics projects
(SIP11)
184
191
193
197
198
One-stop shop fruit handling facility
Mbazwane forest rehabilitation
Makhathini development program
Rehabilitation of agricultural colleges
Project Rebirth
TABLE 13-3: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 1
PAGE 13-28 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
FIGURE 13-5: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 1 (Source: Various)
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-29
SIP 2: DURBAN–FREE STATE–GAUTENG LOGISTICS AND
INDUSTRIAL CORRIDOR
SIP 2 builds on the eminence of the Durban port as the
largest freight and logistics gateway to the African continent.
It will strengthen the logistics and transport corridor
between South Africa’s main industrial hubs (Gauteng and
Durban) by improving access to Durban’s export and import
facilities, integrating the Free State industrial strategy
activities into the corridor, upgrading the Durban port,
upgrading road, rail and pipeline infrastructure and
developing an aerotropolis around the OR Tambo
International Airport.
PROJECT CATEGORY MAP REF NO
PROJECT NAMES
NATMAP 2050 road projects 59
61
54
58
62
48
Construction of PWV9 road
Various road upgrades in Gauteng
N3 Durban–Pietermaritzburg upgrade
N3TC road rehabilitation of sections
N2 Cato Ridge new heavy-haul road
N3 De Beer’s Pass
NATMAP 2050 rail freight projects 76
140 NatCor rail upgrade
Gauteng–Durban new rail line
NATMAP 2050 passenger rail
projects
35
30
Gautrain expansion
Gauteng–Durban high-speed passenger rail
NATMAP 2050 pipeline projects 27
123
New multi-products pipeline (NMPP)
Multimodal facility at Jameson Park
NATMAP 2050 port projects 17 Port of Durban expansion
NATMAP 2050 airport projects 1
2
5
14
Durban aerotropolis
Ekurhuleni aerotropolis
OR Tambo International Airport Expansion
Gauteng 3rd international airport
NATMAP 2050 freight projects 83
84
85
86
106
113
Cato Ridge dry port
City Deep terminal expansion
Pyramid mega intermodal logistics terminal
Sentrarand mega intermodal logistics terminal
Harrismith intermodal logistics terminal
Dube trade port SEZ
Municipal infrastructure projects
(SIP6)
154
159
160
Amajuba District
Umzinyathi District
Uthukela District
Department of Human Settlements
projects
145 Cornubia integrated human settlement
Integrated transport projects (SIP7) 36
39
41
43
46
Rea Vaya integrated rapid transport system
eThekwini integrated rapid transport system
Tshwane integrated rapid transport system
Ekurhuleni integrated rapid transport system
Msunduzi integrated rapid transport system
Agri-logistics projects (SIP11) 184
198
176
179
One-stop shop fruit handling facility
Project Rebirth
Standerton soya crushing plant
National red meat development project
TABLE 13-4: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 2
PAGE 13-30 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
FIGURE 13-6: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 2 (Source: Various)
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-31
SIP 3: SOUTH-EASTERN NODE AND CORRIDOR
DEVELOPMENT
SIP 3 is geared to unlock the gateway potential of the Ports
of Ngqura and Port Elizabeth and their coastal and inland
corridor linkages. It will radically increase the capacity of the
rail corridor to the rich manganese deposits in the Northern
Cape. The manganese sinter (in the Northern Cape) and
manganese smelter (in the Eastern Cape) will realise the
economic benefits of industrialisation through mineral
beneficiation.
The N2 Wild Coast Highway will improve access to KwaZulu-
Natal and national supply chains.
The development of a trans-shipment hub at Ngqura and
the associated port and rail upgrades will improve the
industrial capacity and performance of the strong
automotive sector.
The Mthombo oil refinery and the Ngqura–Gauteng pipeline
will position this node as an alternative energy provider for
the industrial heartland of Gauteng.
PROJECT CATEGORY MAP REF NO
PROJECT NAMES
NATMAP 2050 road
projects
49 N2 Wildcoast road upgrade
NATMAP 2050 rail freight
projects
77 Manganese rail line expansion
NATMAP 2050 pipeline
projects
22
23
Mthombo oil refinery
Ngqura– Gauteng pipeline
NATMAP 2050 port projects 21 Port of Ngqura expansion
NATMAP 2050 airport
projects
10
13
Kimberley Airport upgrade
PE Airport expansion to Code D
NATMAP 2050 freight
projects
105
115
Manganese export line
Coega SEZ
Municipal infrastructure
projects (SIP6)
150
151
152
169
171
Amathole District
Chris Hani District
Joe Gqabi District
John Taolo Gaetsewe District
Xhariep District
Manufacturing projects
(SIP3)
200
201
Manganese sinter (Northern Cape)
Manganese smelter (Eastern Cape)
Department of Human
Settlements projects
38 Nelson Mandela Bay integrated rapid transport system
Agri-logistics projects
(SIP11)
198
179
173
175
181
182
192
Project Rebirth
National red meat development project
Vaalhart vitrus project
Cape malting
Northern Cape vineyard development scheme
Sunday’s River lemon oil processing plant
Vaalhart–Taung irrigation scheme
TABLE 13-5: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 3
PAGE 13-32 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
FIGURE 13-7: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 3 (Source: Various)
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-33
SIP 5: SALDANHA–NORTHERN CAPE DEVELOPMENT
CORRIDOR
SIP 5 capitalises on the rich iron ore reserves in the Northern
Cape to further strengthen the Saldanha port’s economic
potential. An integrated rail and port expansion programme,
together with back-of-port industrial capacity (including an
SEZ) and the expansion of iron ore mining production and
beneficiation, will increase Saldanha’s eminence.
A strategic focus for Saldanha is to offer maritime support
capacity for oil and gas industries along the western coast of
Africa.
PROJECT CATEGORY MAP REF NO
PROJECT NAMES
NATMAP 2050 road
projects
51 Road to Clanwilliam
NATMAP 2050 rail
freight projects
75 Sishen–Saldanha rail upgrade
NATMAP 2050 port
projects
20 Port of Saldanha expansion
NATMAP 2050 freight
projects
112 Saldanha SEZ
Municipal infrastructure
projects (SIP6)
169 John Taolo Gaetsewe District
Agri-logistics projects
(SIP11)
179 National red meat development project
TABLE 13-6: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 3
PAGE 13-34 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
FIGURE 13-8: NATMAP 2050 AND OTHER PROJECTS RELATED TO SIP 5 (Source: Various)
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-35
13.7.4 Provincial and local integration
The purpose of this section is to present the three project
case studies and to evaluate and propose alternatives based
on the option selection process identified by the
NATMAP 2050.
The project case studies are:
SIP 1 – Moloto corridor (PRASA)
SIP 2 – Harrismith development node (SEZ) and Cornubia
(national housing development)
SIP 3 – N2 Wild Coast development corridor and Port
Elizabeth–Coega (housing development agency HDA and
SEZ)
The approach has been adopted based on the three steps
proposed in the NATMAP 2050 option selection process
methodology presented in Section 13.3 above:
Defining the needs and objectives
Identifying the preferred intervention
Prioritisation
The aim of the case studies is not to prioritise the
interventions and selection of the optimum delivery
mechanism (as this process has already been concluded
outside of the NATMAP 2050 process); rather, it is to use the
option selection process to select alternatives/interventions
to fill planning and implementation gaps based on the issues
and challenges identified and to determine if the process
promotes integration between projects and initiatives at
national, provincial or local level. Emphasis is placed on
integration to enhance the impact of the projects through
collective investment across different disciplines – thus,
double the impact with less effort and capital investment in a
specific areas. The sub-sections below describe the case
study approach in terms of the following attributes
examined:
PROJECT CONTEXT, CHALLENGES AND ISSUES
A starting point in the process is the gathering of
information relating to housing and economic development
and transport and bulk service projects that take place within
a specified project (SIP) area or link to the node under
evaluation. The information collected also reveals who the
responsible implementing agent is. This data, in conjunction
with that provided in Chapter 6, was used as a departure
point for a national and provincial perspective on each case
study.
However, for the purposes of metropolitan/district and local
details of the selected case studies, alternative data sources
were required to provide the details required for analysis.
The detailed information required included, for example, the
number of housing units, the total area reserved for
economic/industrial development, the bulk service
infrastructure required, transport projects (e.g. road, rail,
public transport, pedestrian), social amenities and
educational institutions.
The NATMAP 2050 provides outline guidance on these local
plans and forms part of the Phase 1 and Phase 2 reports
developed as part of the NATMAP 2050. However, several of
these plans were recently updated. The plans available in the
public domain were, therefore, used as input to develop the
context, challenges and issues for each project.
FIGURE 13-9: THE NATMAP 2050 ANALYTICAL CASE STUDY APPROACH
PAGE 13-36 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
GENERATE OPTIONS/ALTERNATIVES
After the evaluation and identification of gaps, alternative
mitigating measures need to be developed to mitigate these
gaps. The thought processes applied during the
development of these alternatives are to:
Identify the infrastructure, services and amenities required
to provide sustainable transport connectivity and mobility
Consider feedback implications if projects are not
(transport) integrated
Identify issues that may arise if there is no connectivity,
mobility or other components and services
Identify new interventions to fill gaps.
Where new interventions are required, define alternative
interventions in terms of:
Transport mobility and connectivity. Propose appropriate
transport modes using technology choice framework and
road network expansion (capacity and road network
extent).
Alternative locality for housing and economic
development in relation to each other
Bulk services requirements to ensure integrated and
sustainable development. Provide alternatives to consider
what would happen if people are relocated or economic
development is brought closer; and whether the bulk
infrastructure cost is too high or acceptable.
APPRAISE ALTERNATIVES
The appraisal of alternatives needs to consider the full life
cycle needs of a project or community. Thus, some actions
can assist in alleviating the severity of the issue or challenge
in the short term but, in the long term, other mitigating
measures may be required to ensure sustainable and
integrated development. For this purpose, alternatives
examined need to be compared in respect of their short-
medium- or long-term framework.
The impact of collective expenditure across sectors in a
specific area that happens in a coordinated manner will show
results in the short, medium and long term. The identification
of where these areas are and of where a critical component
is missing to unlock these areas needs to be highlighted
during the prioritisation process.
The outline to present, describe and illustrate the level of
alignment and integration for the case studies is:
Project description and locality
Project challenges and constraints
Intervention options and alternatives
Integration assessment
Alternatives proposed.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-37
13.7.5 Case study 1: SIP 1 – Moloto passenger
corridor
The Moloto development corridor forms part of SIP 1 –
unlocking the northern mineral belt with Waterberg as
catalyst. The Moloto passenger corridor in relation to
other SIP 1 and NATMAP 2050 infrastructure projects is
illustrated in Figure 13-10.
The main focus of this initiative is to improve road safety
along the Moloto Road, to improve the existing bus
service on the road and to introduce a potential rail
commuter system aimed at improving regional
connectivity (link with the proposed Dilokong corridor,
Limpopo) and the mobility of commuters on the corridor.
The Moloto proposal is aimed at:
Reducing the high road accident rate along the Moloto
Road
Improving mobility options to commuters between
Moloto and Tshwane
Reducing overall journey times along the corridor
Improving access to employment opportunities
Addressing the backlog of basic municipal service
provision for communities within the corridor.
PROJECT CHALLENGES AND ISSUES
The main issues and challenges related to the planning and
implementation of the corridor enhancement are:
Dispersed population
Limited employment opportunities within the corridor
High cost associated with relocating residents closer to
work opportunities, leading to long travel times and a
resistance to relocate closer to work and other social
infrastructure
The corridor is known for a high road accident rate
involving public transport vehicles
Selected sections of the road require capacity upgrades
and periodic road maintenance.
PROPOSED INTERVENTIONS DEFINED PREVIOUSLY
The existing interventions proposed respond to the need for
improved connectivity, mobility and road safety and include:
SANRAL road capacity upgrades
PRASA Moloto rail corridor feasibility studies:
The proposed railway line stretches across 198 km,
linking 24 railway stations in total.
Several TOD interventions along the corridor are
proposed per the SDF and economic development plans.
INTEGRATION ASSESSMENT
The integration assessment of the Moloto corridor revealed
that the corridor provides a regional function and the
projects proposed at this point related to a regional rather
than a national or local context.
The results of the integration assessment for the Moloto
corridor are shown in Table 13-7.
Legend:
Integrated Partially
integrated
Not integration
The horizontal integration assessment was derived by taking
the following aspects into consideration per the criteria for
the Moloto corridor:
Housing/economic development:
The density of housing units within the communities
along the corridor is low, implying low passenger
density within the corridor. A low passenger density, in
turn, requires modes with lesser capacity, as shown by
the technology framework (see Chapter 8).
Due to limited employment opportunities within the
corridor, residents wish to travel to Tshwane in search
of employment opportunities, which gives rise to the
need to travel from the area in the morning and
commute back in the afternoon.
Horizontal integration assessment Cross-sectoral Transport system
Housing Road
Economic,
industrial, SEZ Rail
Social
infrastructure
Public
transport
Bulk infrastructure Pedestrians
Vertical integration assessment
National Provincial Local
Connectivity
Mobility
FIGURE 13-10: SIP 1 – MOLOTO CORRIDOR LOCALITY MAP
Source: NATMAP 2050
TABLE 13-7: SIP 1 – MOLOTO CORRIDOR – INTEGRATION
ASSESSMENT RESULTS
PAGE 13-38 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
Social infrastructure:
Significant investment is required to provide the
required social infrastructure. The dispersed
community patterns will result in high investment cost.
A densification strategy is required to render services
more financially viable.
Bulk infrastructure:
The lack of bulk services in residential areas
surrounding the corridor is far-reaching and the cost
estimation to provide the communities with basic
services nearly equals the cost of the implementation
of the rail corridor.
Transport system:
The following modes and types of infrastructure are
available within the corridor:
Road network fully developed on Class 2–4 level roads
needs to be provided
Public transport services are available
Commuter rail services are not available.
Pedestrian facilities to and from public transport services are,
currently, not given sufficient priority.
INTERVENTION OPTIONS AND ALTERNATIVES
Significant capital investment is made into the corridor to
eradicate the municipal service backlog and to provide social
services in the short term. However, this spending needs to
be supported by long-term economic development in the
corridor to ensure sustainable development. To support this
objective, the following alternatives need to be considered:
Horizontal integration alternatives
Housing and economic development:
Corridor densification and TOD along the corridor,
not only the proposed rail line link.
Vertical integration alternatives transport system
The following alternatives needs to be considered relating:
Road infrastructure:
Road capacity upgrades on selected road sections.
Road capacity improvement will decrease congestion
and travel time.
Road traffic regulation enforcement to assist in vehicle
road worthiness and improving driver behaviour. This
will assist in the reduction of vehicle accidents.
Technology choice:
Introduce an optimal modal solution that might be a
combination of public transport modes per the
technology choice framework:
It needs to be noted that rail is the most appropriate
mode, given the distance, but has a limited business
case due to the total number of daily passengers
using services in the corridor. Due to the cost of
implementation and patronage, rail subsidy will be
very high.
The implementation of a rail link for regional
connectivity needs to be supported by regular bus
and taxi feeder services to and from the
communities in the corridor.
ALTERNATIVES PRIORITISED
The alternatives presented in the preceding section can be
implemented in the short, medium or long term. This
strategy is not an indication of priority per se but proposes
ways to address issues and challenges across sectors. The
alternative prioritisations per implementation framework are:
Short term
Selected road upgrades
Road traffic regulation enforcement
Medium term
Introduce an optimal modal solution that might be a
combination of public transport modes as per the
technology choice framework.
Long term
Corridor densification and TOD along the corridor
Supported by regular bus and taxi feeder services.
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-39
13.7.6 Case study 2: SIP 2 – Harrismith
development node
The Harrismith development node forms part of SIP 2, which
is aimed at improving freight mobility along the N3 to and
from Durban, and includes:
Capacity upgrades/the possible realignment of the N3 on
sections where mobility function is compromised in the
vicinity of Harrismith
Implementation of a SEZ at Harrismith;
Implementation of a Harrismith logistics hub
Several housing projects (areas north of the existing CBD
and Tshiame 10km west of the CBD) to stimulate growth.
The improvement of mobility on the Van Reenen’s Pass
The Harrismith node and other related SIP2 and NATMAP
2050 transport-related projects are shown in Figure 13-11.
PROJECT CHALLENGES AND ISSUES
Harrismith is a significant diversion and conversion point of
freight and other traffic along the N3 corridor. It is,
furthermore, an important interchange of freight from the
Free State to Durban via the N3.
Harrismith, as a town and halfway house for freight traffic, is
economically dependent on the economic side effects
associated with through traffic.
The N3 provides connectivity on a national and provincial
level and is the corridor/road with the highest freight traffic
in South Africa. Due to the significance of the N3, it is
important that this road retain its mobility function. To this
end, several alternative alignments have been proposed to
preserve its mobility function, but these alignments will have
major economic impacts on Harrismith.
On a regional and local level, the development of the SEZ
near Tshiame and the logistics hub close to Hurdustria to the
south of the CBD could help strengthen the economic
viability of Harrismith. This might help to mitigate the impact
of realigning the N3.
These two developments are located about 10km apart and
situated in undeveloped areas connected by a minor road.
Figure 13-11 illustrates disjointed planning in that no
linkages are proposed between housing schemes to the
north of the CBD and the proposed economic developments
to the south of Harrismith. Connectivity is available but with
a much longer routing option.
The logistics hub is situated 10km from the SEZ along the
N5. Logistics costs will increase if the HLH will be used as the
main distributor of products produced in M-SEZ. It is also
noted that some of the housing developments are situated
to the north of the CBD and HLH with limited Class 3 road
links joining them. In addition, the railway line forms a barrier
between these developments. It will, therefore, be prudent to
consider appropriate measures to reduce journey time and
travel distance, including additional road links and public
transport services. Public transport services are
provided in the area by bus and taxi but do not
connect the proposed developments in
Harrismith.
Mobility roads are Class 3 to Class 1 roads.
Within a town or local municipality, main
nodes, including an SEZ or logistics hub, need
to be linked to housing and other commercial
developments with higher order roads.
INTEGRATION ASSESSMENT
The integration assessment considered the
transport system at national, provincial and
local levels. The focus of each assessment level
is:
The national assessment relates to the
mobility function and realignment of the N3 to
preserve the mobility function.
The provincial assessment pertains to
the national and main roads that link the SEZ and logistics
hub to the Free State and other provinces.
The local level assessment considers the mobility and
connectivity of the SEZ, logistics hub and related housing
developments in the area.
For the purposes of cross-sectoral integration, the
assessment was applied to the SEZ, logistics hub and
housing developments. The results of the integration
assessment for the Harrismith development node are shown
in Table 13-8 with reference to the selected projects per
integration level.
FIGURE 13-11: SIP 2 – HARRISMITH DEVELOPMENT NODE LOCALITY MAP
Source: NATMAP 2050
PAGE 13-40 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
Horizontal integration assessment Cross-sectoral Transport system
Housing Road
Economic, industrial,
SEZ Rail
Social infrastructure Public
transport
Bulk infrastructure Pedestrians
Vertical integration assessment
National Provincial Local
Connectivity
Mobility
Legend:
Integrated Partially
integrated
Not integrated
INTERVENTION OPTIONS AND ALTERNATIVES
The following alternatives are proposed to address the gaps
identified by the integration assessment:
Consider alternative N3 alignment to improve
connectivity, accessibility and mobility to the Harrismith–
Tshiame–Hardustria transport logistics node
Enhance connectivity and accessibility between the
northern housing projects and Tshiame and the HLH, CBD
and SEZ by introducing:
A new link road (Class 3)
A regular bus service
Improve accessibility to the N5 from the SEZ
Restore the N5’s mobility function through regular road
maintenance
Maintain secondary roads to provide access to the SEZ
and HLH.
The proposed Class 3 and N3 alternative alignments are
presented in Figure 13-12.
ALTERNATIVES PRIORITISED
The alternatives presented in the preceding section can be
implemented in the short, medium or long term. This is
strategy is not an indication of priority per se but proposes
to address issues and challenges across sectors. The
alternative prioritisations per implementation framework are:
Short term:
Maintain secondary roads to provide access to the SEZ
and HLH
Medium term:
Enhance connectivity and accessibility between the
northern housing projects and Tshiame and the HLH,
CBD and SEZ by introducing
A new link road (Class 3)
A regular bus service
Long term:
Improve accessibility to the N5 from the
SEZ
Restore the N3’s mobility function
through alternative alignment that meets
both local economic focus and preserves
the road’s national mobility function.
TABLE 13-8: SIP 1 – HARRISMITH NODE – INTEGRATION ASSESMENT
RESULTS
FIGURE 13-12: SIP 2 – HARRISMITH DEVELOPMENT NODE PROPOSED ALTERNATIVES
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-41
13.7.7 Case study 3: SIP 2 – Cornubia
development node
SIP 2 is aimed at improving freight mobility along the N3 to
and from the main industrial hubs in and around Durban.
Hence, the evaluation focused on a metropolitan level of the
integrated human settlement at Cornubia in close proximity
to the Dube trade port IDZ. The regional locality in relation
to SIP 2 and NATMAP projects are illustrated in Figures 13-
13 and 13-14. The development extent at full development
stage comprises:
24 320 housing units, of which 15 000 will be subsidised
breaking new ground (BNG) units
Schools, commercial activities and industrial development
Phases 1 and 2 of the project are underway and include
housing and retail.
PROJECT CHALLENGES AND ISSUES
The main issues and challenges identified relevant to
integration are:
Cornubia is not linked to other developments and the IDZ
through public transport services
Connectivity between development and employment
opportunities is insufficient
The development is isolated from the eThekwini CBD and
other commercial and industrial development, limiting the
residents’ ability to access employment opportunities.
Several high-order roads can be accessed from the proposed
development. These include the M41/R102 and the N2. A
new interchange forms part of the proposed development
plan, which will provide direct access to the N2.
Long-distance passenger services are accessible from the
development via a rail station situated to the north-east of
the proposed development near Old Main Road. PRASA is
planning to upgrade the station and services in the area.
A rail link between Cornubia, Bridge City and the Dube trade
port and the King Shaka International Airport will enhance
regional mobility and integrate the development at
regional/provincial level.
Based on the total number of housing units and estimated
number of person trips that will be generated from the
development at full development stage, a BRT system will be
a viable option to link Cornubia to employment areas such as
the Dube trade port.
The development comprises mixed used development,
providing, in the long term, educational facilities and
commercial and retail development.
Other cross-sectoral elements are accommodated in the
proposed development plan. The construction of schools will
follow in later phases. Consequently, a scholar public
transport system from the area to nearby schools will be
required.
INTEGRATION ASSESSMENT
Given the nature and extent of the proposed development
the assessment focused on the metropolitan and local levels.
For the purpose of cross sectoral integration, the assessment
was applied to integration with Dube Trade Port IDZ given
that the development is an Integrated Human Settlements
Development.
The result of the integration assessment for the Cornubia
Integrated Human Settlement is shown in Table 13-9.
Horizontal integration evaluation Cross-sectoral Transport system
Housing Road -
Economic, industrial,
SEZ Rail
Social infrastructure Public
transport
Bulk infrastructure Pedestrians
Vertical integration evaluation
National Provincial/
regional
Local
Connectivity
Mobility
Legend:
Integrated Partially integrated Not integrated
TABLE 13-9: SIP 1 – CORNUBIA INTEGRATED HUMAN SETTLEMENT –
INTEGRATION ASSESMENT RESULTS
FIGURE 13-13: SIP 2 – CORNUBIA MIXED USE DEVELOPMENT REGIONAL
LOCALITY MAP
Source: NATMAP 2050
PAGE 13-42 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
INTERVENTION OPTIONS AND ALTERNATIVES
The following alternatives are proposed to address the gaps
identified in the integration assessment process.
Connectivity improvement:
BRT presents the most viable short-term solution to
link Cornubia to employment areas such as the Dube
trade port.
An additional on-ramp should be considered for
implementation on the north–south highway to
Cornubia.
Mobility improvement:
Examine whether rail is a viable mode to link Cornubia,
Bridge City and the Dube trade port and the King
Shaka International Airport in the medium to long term
(supported by PRASA NSP).
ALTERNATIVES PRIORITISED
The alternatives presented in the preceding analysis have
been prioritised for implementation in the short, medium or
long term. This strategy is not an indication of priority per se
but proposes to address issues and challenges across
sectors. The alternative prioritisations per framework are:
Short term:
BRT system to link Cornubia to the Dube trade port
Medium term:
Additional on-ramp on the highway to Cornubia
Re-alignment of the R102 (at DTP) part of the ITP
Long term:
Rail link between Cornubia, Bridge City, the Dube trade
port and the King Shaka International Airport
FIGURE 13-14: SIP 2 – CORNUBIA MIXED USE DEVELOPMENT
Source: NATMAP 2050
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-43
13.7.8 Case study 4: SIP 3 – N2 Wild Coast
(toll road)
SIP 3 promotes rural development by improving
access to KwaZulu-Natal and national supply chains
via the Wild Coast Highway. The proposal responds
to a road safety concern along the N2 in the direct
vicinity of Mthatha and the R61. The area is known
to have of a high accident rate. Improvement to
accessibility will be in the form of an upgrade on the
N2 Wild Coast Highway and several secondary
roads. The regional locality of the N2 between Port
Elizabeth and Durban is shown in Figure 13-14.
The N2 Wild Coast Highway upgrade comprises
three main road sections:
The upgrading of the existing N2 with tolling
proposals
The upgrading of a section of the existing R61
and the proposal that this section form part of
the tolled highway
The introduction of greenfields sections on the
proposed toll highway.
The estimated cost for the road upgrades, including
greenfield sections, of the project is estimated at R 7.5
billion.
PROJECT CHALLENGES AND ISSUES
The upgrading of the N2 and possible tolling of the road
takes place within the context of several factors:
The upgrading of the R61 is constrained by limited
funding. Therefore, tolling is considered as a funding
mechanism.
Several sections of the N2 and R61 require road capacity
upgrades or rehabilitation.
The N2 Wild Coast Highway provides mobility and
connectivity to:
Agricultural freight movement
Tourism
General freight movements.
The N2 is the only Class 1 road for several communities in
the Eastern Cape and, due to topography, an alternative
secondary road network is limited.
The N2 provides connection between Port Elizabeth and
Durban. The N6, N9 and N10 provide connectivity with the
provinces adjacent to the Eastern Cape. The Eastern Cape
has an extensive Class 1 road network.
An established secondary road network (R362, R61, R72, R75)
provides alternative routes, should the N2 be tolled,
although the origin destination journey distance will be
much longer.
Passenger transport options are available and accessible
from main nodes in the vicinity of the N2. Passenger rail
services, including the reintroduction of the Kei Rail,
have been considered in the past to link majors centres
along the N2, including Mthatha.
The mobility function of the N9, N10, N6 and N2 is
under pressure. Thus, road capacity upgrades are
urgently required. With limited funding available for
these upgrades, alternative solutions are required to
help preserve the mobility function of these roads.
The mobility function of a corridor is linked to the travel
time between two points in a corridor. With the
proposed upgrade and re-alignment of the N2, the
travel distance between Mthatha and Port Shepstone
will be 160 km instead of the existing distance of
240km. A considerable time saving can be achieved by
constructing the greenfields section of the N2.
INTEGRATION ASSESSMENT
The integration assessment of the transport system was
carried out at provincial level due to the connectivity
function of the N2 Wild Coast Highway.
For the purposes of cross-sectoral integration, the
assessment was applied to integration with tourism
nodes and agricultural nodes in the corridor surrounding the
N2.
FIGURE 13-14: SIP 3 – N2 WILD COAST TOLL ROAD LOCALITY
Source: NATMAP 2050 and SANRAL Website 2015
PAGE 13-44 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
Horizontal integration evaluation Cross-sectoral Transport system
Housing Road
Economic, industrial,
SEZ Rail
Social infrastructure Public
transport
Bulk infrastructure Pedestrians
Vertical integration evaluation
National Provincial Local
Connectivity
Mobility
Legend:
Integrated Partially integrated Not integrated
INTERVENTION OPTIONS AND ALTERNATIVES
The following alternatives are proposed to address the gaps
identified during the integration assessment process:
N2 – Road capacity upgrades in support of tolling:
Alternative secondary roads will not provide the same
mobility and accessibility through the Eastern Cape,
unless upgraded.
Commitment to upgrade selected secondary roads –
2016/17 (Eastern Cape)
N9, N10, N6 – Upgrades along N6 and N9 started
(SANRAL)
The tolling of the R61 is subject to:
Local resident discounts
The non-tolling of the R61 is subject to:
Forming part of SANRAL’s non-toll road network
Treasury/EC subsidisation of R61 asset management
ALTERNATIVES PRIORITISED
It is proposed that the alternatives presented in the
preceding section be implemented in the short, medium or
long term. This strategy is not an indication of priority per se
but proposes to address issues and challenges across
sectors. The alternative prioritisations per implementation
framework are:
Short term:
N2 – Road capacity upgrades in support of alternative
funding options:
Alternative secondary roads will not provide the same
mobility and accessibility through the Eastern Cape,
unless upgraded.
Commitment to upgrade selected secondary roads –
2016/17 (EC)
N9, N10, N6 upgrades
N9, N10, N6 – Upgrades along N6 and N9 started
(SANRAL)
Medium term:
No alternatives were recommended for medium-term
implementation
Long term: The tolling of the R61 is subject to:
Local resident discounts
The non-tolling of the R61 is subject to:
Forming part of SANRAL’s non-toll road network
Treasury/EC subsidisation of R61 asset management
TABLE 13-10: SIP 3 – N2 WILD COAT TOLL ROAD - – INTEGRATION
ASSESMENT RESULTS
CHAPTER 13 / NATMAP 2050 IMPLEMENTATION STRATEGY PAGE 13-45
FIGURE 13-15: SIP 3 – PORT ELIZABETH–COEGA IDZ LOCALITY MAP
Source: NATMAP 2050
13.7.9 Case study 5: SIP 3 – Port Elizabeth–Coega
IDZ
The Coega IDZ development node comprises the IDZ, the
upgrading of the manganese rail line from Hotazel to
Ngqura, and the associated port upgrade and expansion.
Several housing developments are planned in the direct
vicinity of the IDZ to provide the necessary and appropriate
housing stock.
Several social housing schemes are planned or being
implemented in the Nelson Mandela Bay Metropolitan
Municipality. These housing developments will be the main
areas where people who work in the IDZ will live. The
schemes that are considered to form part of the project are
the Coega Ridge development, the Chatty, Joe Slovo West,
Soweto-on-Sea and Veeplaas areas, Bay West and the N2
integrated development.
PROJECT CHALLENGES AND ISSUES
The main challenge relating to the project is to ensure
connectivity between the housing schemes and the IDZ –
that is, that the expansion of the road network and the
selection of the appropriate mode of transport can
accommodate the passenger demand and travel distance.
All housing schemes linked to the IDZ are connected by
Class 2, 3 and 4 roads, except the Coega Ridge development.
The implementation of connecting metropolitan road
networks and high-order roads forms part of the road
master plan of the city.
The proposed housing schemes are situated along planned
BRT routes and existing bus, taxi or rail services. The planned
BRT express routes pass the Coega Ridge housing
development but there is no a feeder system from the
development to these services. Thus, no direct connectivity
or link between the housing development and the IDZ exists.
It will be appropriate to consider the appropriate mode to
link the housing developments and the Coega IDZ with the
planned BRT or rail connections.
PRASA proposes the implementation of the Motherwell loop
to accommodate the needs of the travelling public in the
vicinity of the Coega IDZ. Implementing both BRT and rail
modes appears to be an oversupply of public transport
services. These services need to be considered wisely.
INTEGRATION ASSESSMENT
The integration assessment of the transport system was
carried out at metropolitan level due to the locality and
influence of the IDZ on passenger transport.
For the purposes of cross-sectoral integration, the
assessment was applied to integration between housing,
transport modes and the locality of the proposed housing
developments.
The result of the
integration
assessment is
illustrated in Table
13-7.
Horizontal integration evaluation
Cross-sectoral Transport system
Housing Road
Economic, industrial,
SEZ Rail
Social infrastructure Public
transport
Bulk infrastructure Pedestrians
Vertical integration evaluation
National Provincial Local
Connectivity
Mobility
Legend:
Integrated Partially integrated Not integrated
TABLE 13-11: SIP 1 – COEGA IDZ – INTEGRATION ASSESMENT
RESULTS
PAGE 13-46 CHAPTER 13 / NATMAP 2050 IMPLEMENTATION METHODOLOGY
INTERVENTION OPTIONS AND ALTERNATIVES
As an outcome of the integration assessment, the following
alternatives/options are proposed:
Re-align the planned BRT routes or provide an
appropriate feeder system to enhance connectivity
between the Coega Ridge housing development and the
Coega IDZ
Continue with the PRASA Motherwell loop
implementation once sufficient passenger volumes exist
and ensure that the BRT system serves as a feeder to the
rail corridor.
ALTERNATIVES PRIORITISED
The alternatives presented in the preceding section can be
implemented in the short, medium or long term. This
strategy not an indication of priority per se but proposes to
address issues and challenges across sectors. The alternative
prioritisations per implementation framework are:
Short term:
Change the planning of the BRT and Coega Ridge
development to allow for a BRT service to link with the
Coega Ridge housing development and the IDZ
Introduce dedicated BRT services with express services
in peak periods.
Medium term:
Proceed with the planning of the PRASA passenger rail
infrastructure – the Motherwell loop
Establish BRT services to accommodate passengers.
Long term:
Continue with the Motherwell loop construction to
increase connectivity and mobility beyond 2020.
13.7.10 Conclusion
This chapter expands upon the previous chapters by defining
how the DoT and its partners can enable the delivery of the
interventions and strategies defined by the NATMAP 2050 to
bring about the NATMAP 2050 vision.
This sub-section demonstrates the application of the
framework and the option selection process. It demonstrates
how the NATMAP 2050 should be used to create alignment,
integration and coordination between selected strategic
integrated projects (SIPs), and other sectors (refer also to
Figure 13-16 for an overview of the implementation,
alignment and integration case studies that are discussed in
this chapter). It clearly demonstrates how the NATMAP 2050
bridges the gap between disjointed planning and
implementation practices, leaving a transport system that
fully supports cross-sectoral initiatives and projects.
The delivery of the NATMAP 2050 as a master plan is very
important in defining the course of action for transport in
South Africa The priority areas with the identified
interventions that have to be implemented are well aligned
and integrated with other government strategic plans to
realise the NATMAP 2050’s bold vision and objectives.
The DoT is committed to supporting the prioritised
implementation of the interventions and actions defined in
this important plan.